MUNICIPAL  RESEARCH 

To  promote  the  application  of  scientific  principles  to  government 


Issued  Monthly  by  the 

No. 

67 

Bureau  of  Municipal  Research 

Nov., 

1915 

261  Broadway,  New  York 

Entered  as  Second  Class  Matter  July  30, 1913,  at  the  Post  Office,  at  New  York, 
N.  Y.,  under  the  Act  of  Congress,  August  24, 1912 

STANDARDIZATION  OF  PUBLIC  EMPLOYMENTS 


Part  I 
CONTENTS 


CHAPTER  PAGE 

INTRODUCTION  .. .  iii 

I— THE  OLD  ORDER . ! .  1 


II— FIRST  STEP  TOWARD  CIVIL  SERVICE  REFORM .  6 

III—  INEQUALITIES  IN  OLD  EMPLOYMENT  METHODS .  12 

IV—  THE  WORK  AND  PURPOSES  OF  STANDARDIZATION 

AGENCIES . . .  16 

V — THE  SCIENTIFIC  SIDE  OF  STANDARDIZATION .  20 

VI— THE  PRACTICAL  SIDE  OF  STANDARDIZATION  IN  VAR¬ 
IOUS  CITIES . J . . . .  32 

VII— INFLUENCE  OF  THE  STANDARDIZATION  MOVEMENT- 

PRESENT  ATTITUDE  OF  THE  COUNTRY  TOWARD  IT  41 

APPENDIX . . -1 .  44 


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3  5  1 


STANDARDIZATION  OF  PUBLIC  EMPLOYMENTS 

PART  I 


An  Interpretation  of  the  Standardization  Movement 


INTRODUCTION 


d 


a 


& 


Many  years  since,  the  average  American  became  convinced 
that  the  country  needs  specially  trained  men  for  military  service. 
Only  within  the  last  few  years,  however,  has  a  thinking  majority 
come  to  accept  with  the  same  degree  of  finality  the  conclusion 
that  the  country  needs  well  trained  men  for  civil  service.  In 
fact,  before  1870,  this  idea  was  quite  foreign  to  our  whole  politi¬ 
cal  philosophy.  Then  many  things  began  to  point  the  lesson: 
the  rapid  centralization  of  population  and  the  consequent  in¬ 
crease  in  demands  by  the  people  for  service  by  the  government; 
the  need  for  new  forms  of  revenue  to  meet  increasing  expendi¬ 
tures;  the  growing  complexity  of  problems  of  administration 
and  technique- — these  are  among  the  many  happenings  that 
serve  to  explain  the  new  attitude  of  citizens  toward  their  gov¬ 
ernment  and  toward  the  personnel  doing  its  work. 

More  than  anything  else,  what  turned  attention  to  the  need 
for  civil  service  reform  was  the  “spoils  system” — the  conscious¬ 
ness  that  the  millions  of  dollars  appropriated  each  year  for  per¬ 
sonal  service  by  federal,  state  and  municipal  legislatures  were 
being  worse  than  wasted — the  realization  that  they  were  being 
used  as  a  corruption  fund  with  which  to  influence,  if  not  to  buy, 
votes  for  designing  persons  who  sought  authority  in  order  that 
they  and  their  friends  might  divert  the  resources  of  government 
to  their  own  selfish  ends  or  to  the  upbuilding  of  an  irresponsible 
partisan  organization.  Each  new  generation  began  to  ask  itself 
why  it  should  be  a  party  to  the  continuation  of  such  a  practice. 

Young  men  about  to  become  members  of  political  clubs  were 
told  by  party  orators  that  there  were  great  national  principles 


in 


STANDARDIZATION  OF  PUBLIC  EMPLOYMENTS 


to  be  decided.  In  practice,  however,  they  found  that  an  election 
was  a  contest  between  organized  forces  whose  controlling  heads 
cared  little  for  principle;  that  the  results  of  an  election  deter¬ 
mined  whether  their  association  or  some  other  would  be  given 
preference  in  obtaining  access  to  the  public  purse;  that  the  end 
to  be  attained  through  election  was  authority  to  make  appoint¬ 
ments,  to  award  contracts,  to  sign  vouchers,  and  to  vote  away 
public  franchises. 

Initially,  the  Jacksonian  doctrine  “to  the  victor  belong  the 
spoils”  w^s  accepted  without  any  very  clear  view  of  what  it  all 
meant.  The  need  for  government  was  little  felt  except  as  a 
matter  of  military  necessity.  When,  however,  the  problems  of 
civil  government  were  brought  home  to  citizens  their  attitude 
began  to  change.  But  a  change  in  the  point  of  view  of  the  indi¬ 
vidual  was  one  thing.  The  overthrow  of  a  thoroughly  estab¬ 
lished  political  system  based  on  organized  spoils  was  another. 
Our  government  had  made  no  provision  for  responsible  official 
leadership.  The  only  means  of  expressing  opinion  was  through 
irresponsible  parties  dominated  by  an  irresponsible  “boss”  and 
the  “party”  from  the  boss  down  was  built  upon  spoils,  the  most 
general  and  far-reaching  form  of  which  was  the  distribution  of 
jobs.  Appointments  to  positions  in  the  service  were  the  rewards 
to  the  controlled  many,  while  fat  contracts  and  highly  valuable 
franchises  were  the  rewards  to  the  controlling  few.  The  inso¬ 
lence  and  indifference  felt  regarding  the  morality  of  such  a  method 
of  political  domination  are  still  evidenced  by  the  enthusiasm 
with  which  “regulars”  greet  the  public  as  they  stand  by  after 
the  polls  are  closed  on  election  day  and  sing — “Hail,  hail,  the 
gang’s  all  here!  What  the  hell  do  we  care!  What  the  hell  do 
we  care!”  The  attitude  of  promoters  looking  for  franchises  and 
of  holders  of  franchise  rights  is  still  too  often  expressed  by  the 
trite  adage — “The  public  be  damned.” 


IV 


CHAPTER  I 


THE  OLD  ORDER 


The  extent  to  which  the  scramble  for  jobs  after  elections  occu¬ 
pied  the  attention  of  officers,  and  entered  into  the  personal  plans 
of  party  adherents  is  shown  by  many  contemporary  accounts. 
An  article  by  James  Parton,  entitled  “  Uncle  Sam’s  Treatment  of 
his  Servants”  in  the  Atlantic  Monthly  for  December,  1869,  very 
vividly  characterizes  these  untoward  conditions  which  made 
public  office  a  means  of  individual  and  parly  exploitation  instead 
of  an  opportunity  for  dignified  employment  and  public  service. 

To  quote: 

“  I  might  dwell  upon  the  waste,  the  anguish,  the  indecency, 
the  degradation,  of  this  scramble.  I  might  speak  of  men 
coming  to  Washington  with  high  hopes  and  full  pockets,  who 
begin  by  living  at  Willards  and  treating  with  champagne, 
then  remove  to  a  less  expensive  hotel,  afterwards  to  a  cheap 
boarding  house,  and  finally,  after  subsisting  awhile  at  ‘free 
lunches,’  borrow  money  to  go  home,  where  they  arrive 
haggard  and  savage.  I  might  speak  of  the  impossibility 
of  making  good  appointments  in  such  circumstances;  of  the 
much  better  chance  that  brazen  importunity  has  at  such 
a  time  than  merit;  of  the  greater  likelihood  that  a  noisy 
eleventh-hour  convert  will  get  an  office  thhn  a  man  who  has 
borne  the  burden  and  heat  of  the  day,  but  has  omitted  to 
come  to  Washington;  .  .  .  But  all  things  cannot  be 

said  in  one  short  article.  The  great  evil  of  the  system, 
as  it  is  seen  at  Washington,  is  that  it  compels  the  chief 
persons  of  the  government  to  expend  most  of  their  time  and 
strength  upon  a  matter  that  properly  belongs  to  subordi¬ 
nates. 

“  ‘What  is  it  to  be  president?’  I  once  asked  of  a  gentle¬ 
man  who  had  filled  the  office;  ‘What  is  the  principal  thing 
a  president  does?’  The  reply  was,  ‘  to  make  appointments.’  ” 

A  similar  recital  is  found  in  a  Washington  letter  of  April 
2nd, 1869: 

“Today  the  hundreds  of  office  seekers  now  here,  flock  to 
the  Capitol.  At  about  two  o’clock,  General  Porter  made  his 
appearance,  and  after  depositing  with  the  Senate  his  sealed 

1 


STANDARDIZATION  OF  PUBLIC  EMPLOYMENTS 


packages  of  appointments,  he  repaired  to  the  Secretary's 
office  and  there  placed  a  list  of  the  same  for  the  public. 
In  an  instant  a  grand  rush  was  made  for  this  office,  and  soon 
there  was  scarcely  standing  room  therein.  Reporters  of 
the  afternoon  papers  tried  in  vain  to  secure  copies  of  the 
names  on  the  list,  but  the  hungry,  anxious  and  eager  crowds 
rushed  in  pell  mell.  It  was  amusing  to  see  the  expressions 
of  the  faces  of  these  people  after  the  list  had  been  read. 
Of  course,  none  of  the  successful  candidates  were  present, 
and  all  were  disappointed.  The  score  or  more  persons 
seeking  the  same  office  sought  their  Congressman,  and  each 
demanded  explanations  of  the  why  and  wherefore.  .  .  . 

The  8:40  train  for  New  York  was  packed  with  the  most 
dejected,  pitiful,  profane  and  demoralized  crowd  of  men 
that  ever  left  the  city." 

The  conditions  existing  in  the  civil  service  as  a  result  of  this 
system  of  organized  exploitation  are  vividly  portrayed  in  the 
fourth  report  of  the  United  States  Civil  Service  Commission  for 
the  year  1887.  This  report  exposes  the  waste  and  abuses  of  the 
patronage  system.  The  following  picture  of  departmental  mis¬ 
management  traceable  directly  to  the  “ spoils  system"  is  particu¬ 
larly  illuminating : 

“The  act  entitled  ‘An  act  to  regulate  and  improve  the 
civil  service  of  the  United  States’  has  been  in  force  now 
nearly  four  years  and  a  half,  a  part  of  that  time  under  the 
administration  of  one  party  and  a  part  under  that  of  another. 
That  there  has  been  accomplished  in  the  execution  of  the 
law  all  that  its  sanguine  friends  expected  is  not  claimed; 
but  without  any  degree  of  inexactness  in  statement,  it  may 
be  said  that  in  the  results  of  its  execution  is  shown  the 
wisdom  of  the  principle  of  divorcing  the  subordinate  offices 
of  the  government  from  politics  and  elections  and  making 
continuance  in  office  dependent  not  upon  party  service  but 
upon  merit  and  good  behavior.  In  this  respect  the  law 
has  produced  results  which  are  not  extravagantly  described 
as  surprising. 

“Before  the  enactment  of  the  civil  service  act  the  condi¬ 
tion  of  the  executive  civil  service  in  the  departments  at 
Washington  and  in  the  customs  and  postal  services  was 
deplorable.  In  the  Department  of  the  Treasury  3,400 
.persons  were  at  one  time  employed,  less  that  1,600  of 
them  under  authority  of  law.  Of  these  3,400  employes, 
1,700  were  put  on  and  off  the  rolls  at  the  pleasure  of  the 
secretary,  who  paid  them  out  of  funds  that  had  not  by 
law  been  appropriated  for  the  payment  of  such  employes. 
At  that  time,  of  a  force  of  958  persons  employed  in  the 
Bureau  of  Engraving  and  Printing,  539,  with  annual  salaries 

2 


THE  OLD  ORDER 


amounting  to  $390,000  were,  upon  an  investigation  of  that 
bureau,  found  to  be  superfluous.  For  years  the  force  in 
some  branches  of  that  bureau  had  been  twice  and  even 
three  times  as  great  as  the  work  required.  In  one  division 
there  was  a  sort  of  platform,  built  underneath  the  iron 
roof,  about  7  feet  above  the  floor,  to  accommodate  super¬ 
fluous  employes.  In  another  division  20  messengers  were 
employed  to  do  the  work  of  one.  The  committee  that  made 
this  investigation  reported  that  ‘patronage/  what  is  now 
known  as  the  ‘spoils  system/  was  responsible  for  this  con¬ 
dition,  and  declared  that  this  system  had  cost  the  people 
millions  of  dollars  in  that  branch  of  the  service  alone.  So 
great  was  the  importunity  for  place  under  the  old  system 
of  appointments  that  when  $1,600  and  $1,800  places  became 
vacant  the  salaries  thereof  would  be  allowed  to  lapse,  to 
accumulate,  so  that  these  accumulations  might  be  divided 
among  the  applicants  for  place  on  whose  behalf  patronage- 
mongers  were  incessant  in  importunity.  In  place  of  one 
$1,800  clerk  three  would  be  employed  at  $600  each,  would 
be  employed,  according  to  the  peculiarly  expressive  language 
of  the  patronage-purveyors,  ‘on  the  lapse.’  ‘In  one  case/ 
said  a  person  of  reliability  and  of  accurate  information, 
testifying  before  the  Senate  committee  on  civil  service 
reform  and  retrenchment,  ‘thirty-five  persons  were  put  on 
the  “lapse  fund”  of  the  treasurer’s  office  for  eight  days  at 
the  end  of  a  fiscal  year  to  sop  up  some  money  which  was 
in  danger  of  being  saved  and  returned  to  the  treasury.’ 
Unnecessary  employes  abounded  in  every  department,  in 
every  customs  office,  and  in  almost  every  postoffice.  Dis¬ 
missals  were  made  for  no  other  purpose  than  to  supply  with 
places  the  proteges  of  importunate  solicitors  for  spoils. 
One  collector  at  the  port  of  New  York  removed  on  an 
average  one  of  his  employes  every  third  day  to  make  a 
vacancy  to  be  filled  by  some  member  of  the  same  party 
who  had  ‘worked  to  a  purpose/  not  against  the  common 
political  enemy  but  for  his  patron,  who  had  succeeded  in 
being  appointed  over  some  other  member  of  his  own  party. 
Another  collector  at  that  port,  the  successor  of  the  one 
above  referred  to,  removed  830  of  his  903  subordinates  at 
the  average  rate  of  three  in  every  four  days.  The  successor 
of  this  collector  removed,  within  eighteen  months,  510  of 
his  892  subordinates,  and  his  successor  made  removals  at  the 
rate  of  three  every  five  days.  In  its  first  report  the  com¬ 
mission  said: 

“  ‘It  was  the  expectation  of  such  spoils  which  gave 
each  candidate  for  collector  the  party  strength  which  se¬ 
cured  his  confirmation.  Thus,  during  a  period  of  five 
years  in  succession,  collectors,  all  belonging  to  one  party, 
for  the  purpose  of  patronage,  made  removals  at  a  single 
office  of  members  of  their  own  party  more  frequently 

3 


STANDARDIZATION  OF  PUBLIC  EMPLOYMENTS 


than  at  the  rate  of  one  every  day.  In  1,565  secular 
days  1,678  such  removals  were  made.’ 

“ A  condition  of  affairs  as  deplorable  existed  in  the  postal 
service.  On  all  sides,  in  every  branch  of  the  civil  service, 
subordinate  places  were  used  in  the  interest  of  the  leaders 
of  the  factions  of  a  party,  who  by  assessments,  which  were 
disguised  in  the  form  of  solicitations  for  money,  suggestions 
that  money  ought  to  be  contributed,  and  other  methods  of 
this  kind,  extorted  from  public  employes  funds  which  were 
used  for  political  purposes,  legitimate  and  otherwise.  Even 
members  of  Congress  of  national  reputation  signed  circular 
letters  addressed  to  subordinate  civil  servants  of  the  govern¬ 
ment  requesting  contributions  to  be  paid  to  them,  as  mem¬ 
bers  of  a  political  committee;  doing  this  in  utter  disregard 
of  the  spirit  of  a  provision  of  the  Revised  Statutes  declaring 
it  to  be  unlawful,  an  offense  punishable  by  fine  and  dismissal 
from  office,  for  any  officer  in  the  public  service  to  solicit 
or  receive  money  from  any  other  officer  in  such  service! 
The  public  conscience  had  been  perverted  by  the  doctrine 
that  to  the  victors  belong  the  spoils;  and  the  people  were 
not  shocked  when  they  beheld  public  offices  bestowed  as  a 
reward  for  partisan  services,  upon  persons  at  once  unworthy 
and  incompetent.  Senator  Hoar,  in  his  speech  on  the  Belknap 
impeachment  trial,  forcefully  stated  the  condition  of  the 
public  mind  at  that  time  when  he  said : 

“  ‘I  have  heard  in  highest  places  the  shameless 
doctrine  avowed  by  men  grown  old  in  office,  that  the 
true  way  by  which  power  should  be  gained  in  this 
republic  is  to  bribe  the  people  with  the  offices  created 
for  their  service,  and  the  true  end  for  which  it  should 
be  used  when  gained  is  the  promotion  of  selfish  ambition 
and  the  gratification  of  personal  revenge.’  ” 

It  was  only  through  independent  effort,  through  a  leadership 
quite  independent  of  established  party  organization  that  citizens 
were  able  to  thwart  the  well  laid  plans  of  spoilsmen.  No  oppor¬ 
tunity  was  given  to  attack  the  system  except  in  election  campaigns 
and  these  were  at  stated  periods  and  all  the  machinery  was  in  the 
control  of  the  corruptionists.  A  campaign  of  education  had  to  be 
carried  on  to  reach  the  voter  who  had  nothing  to  gain  and  every¬ 
thing  to  lose  by  continuation  of  the  “spoils  system.”  When  citi¬ 
zens  who  gained  nothing  from  “the  party”  came  to  recognize 
in  the  government  an  agency  for  good,  instead  of  a  necessary 
evil, — the  only  agency  able  to  protect  their  lives  and  properties, 
to  promote  health,  comfort  and  well-being  under  the  changed 
conditions  which  required  that  such  service  be  rendered, — 
then,  a  controlling  force  of  public  opinion  massed  itself  against  the 

4 


THE  OLD  ORDER 


system.  Time  and  again  “the  organization”  was  overthrown. 
The  public  came  to  have  a  new  conception  of  the  purpose  of 
taxation  and  other  contributions  to  the  public  purse;  the  aver¬ 
age  citizen  came  to  see  that  every  dollar  diverted  to  selfish  and 
unsocial  purposes  by  corruptionists  deprived  a  great  community 
of  the  benefit  of  services  which  were  necessary  to  the  welfare  of  all. 
Whether  taxpayers  or  non-taxpayers,  an  overwhelming  majority 
came  to  resent  organized  spoliation,  and  to  lose  interest  in  the  old 
order  of  things  except  as  a  subject  of  protest  and  opposition. 


5 


CHAPTER  II 


FIRST  STEP  TOWARD  CIVIL  SERVICE  REFORM 


From  this  viewpoint,  it  is  easy  to  see  why  it  was  that  the  first 
step  toward  civil  service  reform  was  negative  in  character — i.  e., 
a  campaign  to  prevent  something  which  was  bad,  an  effort  to  win 
adherents  away  from  the  old  notion  that  civil  service  positions 
should  be  regarded  as  stock  in  trade  by  a  lot  of  political  jobbers. 
The  first  reaction  was  against  the  time  honored  Jacksonian 
philosophy  which  awarded  to  the  successful  party  the  right  to 
put  every  office  holder  who  belonged  to  the  opposing  party  out 
of  commission  and  to  completely  reorganize  the  public  service  with 
raw  recruits,  men  who  accepted  positions  in  the  public  service 
with  the  understanding  that  they  received  and  would  retain  their 
posts  as  a  reward  for  allegiance  to  leaders  in  a  campaign  for 
“  spoils.” 

The  first  legislation  was  of  a  negative  character.  Beginning 
back  as  far  as  1850,  efforts  were  made  by  civil  service  reformers 
which  looked  toward  the  enactment  of  laws  to  take  appointments 
out  of  the  control  of  the  “spoilsman.”  This  object  was  partially 
realized  in  1853  when  the  first  regulation  restricting  the  right  of 
appointment  was  passed.  This  law  removed  a  limited  number  of 
positions  from  the  exercise  of  irresponsible  executive  power  and  to 
this  extent  denied  to  the  appointing  officer  the  hitherto  uncon¬ 
tested  right  to  make  a  “clean  sweep.”  The  campaign  of  educa¬ 
tion  was  continued.  In  1871,  the  President  was  authorized 
by  Congress  to  prescribe  rules  generally  for  admission  to  the 
civil  service.  This  law  definitely  located  responsibility  for  the 
determination  of  the  checks  or  restrictions  to  be  placed  on  those 
who  were  vested  with  appointing  power,  but  provided  no  staff 
means  for  carrying  its  measures  into  effect.  Still  further  progress 
in  the  educational  process  was  registered  in  the  civil  service  act  of 
1883,  which  crystallized  the  reform  movement  designed  to  place 
additional  obstacles  in  the  way  of  the  “spoilsman,”  and  further 
emphasized  the  negative  aspect  of  the  efforts  of  the  preceding 
thirty  years. 


6 


FIRST  STEP  TOWARD  CIVIL  SERVICE  REFORM 


The  civil  service  act  provided  a  staff  to  inquire,  to  advise  and 
report,  to  prepare  rules  and  regulations  for  the  assistance  of  the 
President,  to  hold  examinations,  to  keep  registers  and  certify 
applicants.  This  law  also  took  cognizance  of  subjects  other 
than  appointments,  but  the  chain  of  events  leading  to  its  passage 
and  the  history  of  its  operation  indicate  that  it  was  primarily  a 
remedial  measure  aimed  at  two  important  objects,  each  essential 
to  more  efficient  management  of  public  affairs.  The  first  object 
was  to  eliminate  favoritism  or  patronage  in  the  making  of  ap¬ 
pointments,  both  by  imposing  certain  minimum  entrance  re¬ 
quirements  and  by  protecting  civil  servants  from  demands  for 
contributions  of  money  or  service  to  party  leaders  as  a  condition 
precedent  to  continuance  in  office.  The  second  object  was  to 
safeguard  the  government  by  protecting  the  integrity  of  the 
ballot,  to  prevent  the  use  of  official  authority  or  influence  to 
secure  public  employment  for  persons  in  return  for  political 
support,  by  making  such  action  bribery  or  attempt  at  bribery. 

Civil  service  reform  struck  a  decisive  blow  against  organized 
efforts  to  subvert  the  powers  and  resources  of  government  to  the 
selfish  ends  of  spoilsmen.  The  method  employed  was  to  take 
from  the  executive  his  control  over  the  appointments  and  to 
substitute  for  this,  the  control  over  appointments  exercised  by  a 
specially  created  staff  agency  under  the  President  with  power  to 
determine  fitness  by  open  competitive  examination. 

A  perusal  of  the  early  reports  of  the  civil  service  commissions 
of  the  United  States,  of  the  State  of  New  York  and  other  political 
jurisdictions  shows  that  the  negative  aspect  has  been  paramount 
in  the  operation  and  enforcement  of  the  civil  service  law.  The 
legislation  is  clearly  a  limitation  of  executive  power.  The  civil 
service  commissions’  reports  deal  with  the  enforcement  of  pro¬ 
visions  against  bribery  and  other  abuses,  which  were  so  demoral¬ 
izing  or  wasteful  as  to  shock  an  intelligent  electorate  and  com¬ 
pletely  pervert  the  ends  of  government.  Although  in  its 
operation,  the  law  had  the  effect  of  making  the  public  service  more 
attractive  to  men  who  were  capable  of  performing  meritorious 
service,  it  did  not  provide  and  was  not  interpreted  to  furnish  the 
basis  for  a  comprehensive  constructive  program — one  which 
would  look  primarily  after  the  welfare  of  civil  servants  and  the 
development  of  that  esprit  de  corps  which  makes  both  for  indi¬ 
vidual  and  group  efficiency. 

By  the  enactment  of  federal,  state  and  municipal  civil  service 
laws,  the  old  methods  of  transacting  the  business  of  the  govern- 

7 


STANDARDIZATION  OF  PUBLIC  EMPLOYMENTS 


ment  were  not  radically  changed.  Even  as  preventive  measures, 
they  were  in  the  nature  of  first  steps.  Important  posts  still 
remained  the  object  of  patronage.  Promotion  was  still  controlled 
by  accident  or  personal  preference.  Devices  for  removal  or 
transfer  were  easily  invented.  Standards  governing  the  amount, 
kind  or  quality  of  service  to  be  rendered  were  not  formulated. 
Evasions  of  the  civil  service  law  against  political  activity  were 
connived  at,  if  not  actually  encouraged  by  those  in  authority. 
The  original  tendency  to  multiply  positions  in  order  to  keep  in¬ 
tact  a  political  machine  continued  and  the  commissions  them¬ 
selves  were  bi-partisan,  recognizing  the  fact  that  the  administra¬ 
tion  of  the  civil  service  regulations  had  not  been  taken  out  of 
politics.1  The  welfare  of  an  employe  after  he  had  obtained  an 
appointment  was  not  considered  except  as  it  was  involved  in 
measures  to  prevent  his  untimely  removal. 

Indeed,  the  federal  law  furnished  but  slight  protection  to  the 
incumbent  of  an  attractive  post,  for  his  removal  was  not  subject 
to  review  except  where  political  or  religious  reasons  had  been  the 
motive  therefor.  The  working  out  of  employment  regulations 
covering  all  features  of  control  so  as  to  make  the  service  efficient 
from  the  viewpoint  of  the  government  and  the  people,  and  advan¬ 
tageous  from  the  viewpoint  of  the  employe  was  not  within  the 
contemplation  of  the  act.  Attention  was  given  primarily  to 
preventing  officers  from  using  appropriations  and  appointive 
power  to  build  up  a  personal  partisan  following  among  their 
official  subordinates.  It  was  distinctly  an  effort  to  overthrow 
a  system  of  patronage  which  might  be  employed  to  thwart 
public  opinion. 

EFFECT  OF  THE  DEMAND  FOR  INCREASED  EFFICIENCY 

It  is  important  to  keep  this  fact  in  mind:  that  the  reform  law 
of  1883  and  the  acts  which  followed  were  enacted  primarily  for 
the  purpose  of  protecting  the  personnel  and  administration  of 
government  from  undue  or  improper  influences,  and  that  as  such 
they  constituted  only  a  partial  achievement. 

Furthermore,  this  partial  achievement  received  only  half¬ 
hearted  endorsement.  While  in  response  to  public  demand, 
the  dominant  parties  incorporated  the  principle  in  their  plat¬ 
forms,  this  was  done  with  mental  reservations.  Being  negative 
in  operation,  the  civil  service  law  for  many  years  has  acted  chiefly 

1  “Civil  Service  Act,  1883;  First  Annual  Report  of  the  United  States  Civil 
Service  Commission,  1883-1884.” 


8 


FIRST  STEP  TOWARD  CIVIL  SERVICE  REFORM 


as  an  unwelcome  restraint  and  check  upon  officials,  without 
respect  to  their  partisan  affiliations.  In  fact,  during  the  thirty 
years  following  the  act  of  1883,  abuses  more  insidious  than  the 
direct  influences  of  the  “spoils  system/ '  have  at  times  been  at 
work  to  defeat  the  operation  of  the  law.  These  abuses  tended 
to  thrive  the  more  readily  because  the  claims  of  advocates  of  the 
merit  system  were  such  as  to  allay  general  suspicion  and  distrust. 
These  abuses  were  more  insidious,  too,  because  civil  service  com¬ 
missions,  as  staff  agencies  of  chief  executives,  made  it  still  more 
difficult  to  enforce  responsibility  for  appointments.  These  com¬ 
missions  were  neither  given  independence,  nor  had  they  the 
power  to  develop  initiative.  Certainly  the  civil  service  author¬ 
ities  themselves  did  little  to  interpret  the  negative  system  of 
checks  into  a  positive  system  of  constructive  regulation  afford¬ 
ing  opportunity  for  civil  servants. 

Citizen  agencies,  such  as  the  Civil  Service  Reform  Association, 
were  constantly  at  work  promoting  legislation,  and  watching 
administrators  with  a  view  to  enlarging  the  application  of  the 
negative  principle,  and  preventing  harmful  acts.  They  have 
done  everything  in  their  power  to  establish  the  “merit  system” 
through  constitutional  provisions.  Their  campaigns  have  also 
been  effective  in  the  promulgation  of  laws  and  regulations  to 
prevent  the  periodic  dismissal  of  public  servants  by  preventing 
apppointments  to  the  competitive  class  without  the  compliance 
with  required  tests.  But  it  was  not  until  the  more  recent 
demands  for  efficiency  in  the  service  came  to  be  felt,  that 
public  attention  was  focused  on  the  needs  of  the  service 
itself  and  a  constructive  foundation  was  laid.  This  drew  at¬ 
tention  to  the  desirability  of  developing  co-operation  within 
the  government  and  of  building  up  a  constituency  and  a 
public  opinion  outside  government  circles  which  would  support 
efforts  to  make  the  personnel  more  useful  through  training 
and  experience. 

Having  built  up  a  wall  of  legal  protection  against  the  patronage 
jobber,  the  public  began  to  ask  itself  this  question,  “Why  cannot 
we  get  our  public  business  done  as  economically  as  our  private 
business?”  The  fact  that  public  business  was  wastefully  con¬ 
ducted,  operated  as  a  deterrent  when  demands  were  made  that 
the  government  go  into  new  fields.  With  the  new  demands  made 
for  increased  activities,  all  the  influences  which  made  for  the 
unparalleled  development  of  efficiency  in  private  enterprise 
began  to  operate  on  the  government. 

9 


STANDARDIZATION  OF  PUBLIC  EMPLOYMENTS 


Labor-saving  devices  and  new  methods  of  office  procedure 
followed  in  quick  succession.  During  this  period,  private  en¬ 
terprise  everywhere,  from  the  selling  of  peanuts  to  the  operation 
of  great  steel  mills,  underwent  reorganization.  Private  concerns 
spending  millions  experimented  with  new  processes  and  methods, 
in  order  to  obtain  maximum  returns  from  the  personal  service 
and  materials  used.  Staff  organizations  were  developed  to 
promote  “scientific  management”  and  “efficiency  engineering.” 
All  this  made  more  grotesque  the  conditions  under  which  men 
were  required  to  struggle  in  the  public  service.  Men  who  were 
brought  into  daily  touch  with  governmental  agencies  saw  the 
crudities,  the  essential  defects,  the  indifference  of  the  public 
service.  It  was  this  comparison  which  provoked  questions  by 
the  average  voter  as  to  why  those  in  public  office  should  adhere 
to  such  out-of-date  and  wasteful  practices. 

But  even  more  striking  than  crudity  of  method  and  fundamen¬ 
tal  defects  in  organization,  was  the  difference  in  working  condi¬ 
tions  surrounding  the  personnel  of  government.  There  was 
the  ever  increasing  demand  upon  governmental  agencies;  new 
activities  were  being  undertaken  and  old  activities  expanded 
and  the  concept  of  government  as  an  agency  of  broad  social 
service  was  being  applied.  This  expansion  carried  with  it  a  cor¬ 
responding  high  cost  that  emphasized  the  necessity  not  only  of 
giving  to  the  government  employe  a  chance  to  make  good, 
but  also  of  insuring  those  conditions  which  would  secure  to  the 
government  a  greater  measure  of  efficient  service.  Through  the 
operation  of  these  ideas,  citizens  came  to  realize  that  the  public 
officer  could  not  be  expected  to  get  results  unless  he  was  pro¬ 
vided  with  an  effective  organization,  and  that  the  organization 
could  not  be  made  effective  unless  the  service  was  made  attract¬ 
ive  to  persons  of  ability.  Thus  the  whole  subject  came  to 
be  dealt  with  on  the  basis  of  equity  and  fair  dealing,  as  well 
as  with  a  view  toward  the  elimination  of  waste. 

The  outcome  has  been  that  within  the  last  few  years  special¬ 
ized  staffs  have  been  set  at  work  on  the  intricate  problems  of 
employment  and  management  in  the  government.  Intensive 
inquiries  into  working  conditions  in  state  and  federal  govern¬ 
ment  have  been  undertaken.  The  causes  of  inefficiency  and 
mismanagement  have  been  analyzed,  and  the  public  is  coming 
to  have  a  consciousness  of  its  own  responsibility. 

As  a  result,  a  broad  educational  campaign  has  been  launched 
which  has  for  its  foundation  the  assumption  that  the  government 

10 


FIRST  STEP  TOWARD  CIVIL  SERVICE  REFORM 


must  provide  conditions  that  will  insure  the  loyal  co-operation 
of  every  employe — a  co-operation  which  can  come  only  when 
the  government  holds  out  to  the  civil  servant  the  opportunity 
for  continued  advancement  and  when  some  means  is  provided 
for  building  up  within  the  service  a  personnel  which  will  become 
increasingly  efficient  and  which  will  be  rewarded  in  proportion 
to  the  efficiency  acquired  through  experience. 

A  growing  realization  of  these  matters  has  lead  to  the  recog¬ 
nition  of  the  necessity  for  a  complete  overhauling  of  the  whole 
system  or  lack  of  system  of  civil  employment.  A  new  structure 
of  law,  largely  in  the  form  of  practice  regulations,  has  begun  to 
develop.  New  concepts  of  the  requirements  of  a  broad  con¬ 
structive  reform  of  the  civil  service  have  been  formed.  These 
requirements  are  now  conceded  to  include :  the  establishment  of 
standard  specifications  governing  employment  and  rates  of  pay, 
the  definition  of  requirements  for  appointments,  promotions, 
advances  in  pay,  retirements,  pensions,  etc.  and,  in  general,  the 
marking  out  of  definite  and  equitable  working  conditions  to  be 
adhered  to  by  the  government  and  the  employes  with  progressive 
improvement  in  both. 


11 


CHAPTER  III 


* 


INEQUALITIES  IN  OLD  EMPLOYMENT  METHODS 


The  influences  which  led  to  an  awakening  of  the  American 
conscience  have  been  recited.  Also  the  evolution  of  laws  which 
originally  had  for  their  object  the  protection  of  the  public  and 
its  corporate  agent,  the  government.  The  inequity,  the  condi¬ 
tions  which  make  for  discouragement,  the  lack  of  opportunity 
for  civil  servants  and  the  poorly  adapted  methods  of  the  old 
employment  system,  may  be  passed  in  brief  review. 

In  the  first  place,  the  original  civil  service  reformers,  and  those 
who  followed  them,  provided  no  scientific  basis  for  the  fixation  of 
salary  rates  or  employment  conditions  directly  related  thereto. 
In  general,  the  grades  established  by  civil  service  commissions 
have  been  examination  grades  rather  than  salary  grades.  Civil 
service  commissions  were  not  concerned  with  the  amount  of 
salary  which  should  be  paid  for  a  certain  kind  of  work.  John 
Smith,  performing  routine  bookkeeping  exacting  little  or  no  skill 
or  accuracy,  might  receive  $600  per  annum;  another  clerk  per¬ 
forming  similar  work  might  receive  $2,400.  Such  irregularities 
are  to  be  seen  in  the  service  of  practically  every  state  and  city 
in  this  country.  Toward  their  elimination  the  civil  service  com¬ 
missions  have  done  little.  In  a  few  cases  in  which  definite  salary 
rates  were  originally  established,  as,  for  example,  in  the  lower 
grades  of  the  clerical  groups,  the  salary  limits  were  fixed  at  con¬ 
venient  points — about  $180  apart,  but  no  definite  rules  were 
established  governing  the  work  to  be  performed  in  each  grade, 
and  hence  no  salary  control  resulted. 

The  fixation  of  salary  rates  was  the  subject  which  the  early 
civil  service  commissions  seemed  to  feel  was  almost  exclusively  a 
question  for  the  appropriating  body  to  decide.  The  appropriat¬ 
ing  bodies  in  turn  were  governed  by  many  policies,  and  more 
often  by  expediency  in  making  their  decisions.  In  the  haste 
and  pressure  of  budget  making,  without  an  adequate  staff 
to  formulate  general  principles  or  to  furnish  accurate  information 
concerning  the  work  program  of  the  various  offices  or  the  work 

12 


INEQUALITIES  IN  OLD  EMPLOYMENT  METHODS 


requirements  of  the  individual  positions,  such  bodies  generally 
reached  conclusions  as  unjust  to  civil  servants  as  they  were  to 
taxpayers. 

The  urgent  need  for  greater  certainty  in  the  governing  prin¬ 
ciples,  and  a  finer  regard  for  equity  in  dealing  with  questions  of 
employment  has  been  appreciated  by  everyone  who  has  been  at 
work  on  the  employment  problem.  Most  significant  are  the 
preliminary  reports  of  the  committees  which  undertook  the  stand¬ 
ardization  of  employment  conditions  for  the  governments  of  New 
York  City  and  New  York  State.  The  following  excerpt  from 
the  report  of  the  “Committee  on  Standardization  of  Salaries  and 
Grades”  of  the  board  of  estimate  and  apportionment  of  New 
York  City,  under  date  of  December  26,  1913,  is  particularly 
illuminating: 

“It  was  common  knowledge  among  the  members  of  the 
board  of  estimate  and  the  department  heads  that  there 
were  glaring  inequalities  in  the  salaries  paid  individual  em¬ 
ployes  doing  work  of  substantially  the  same  value  in  the 
city.  These  inequalities  were  known  to  exist  not  only  as 
between  various  city  departments,  but  also  within  the  de¬ 
partments  themselves.  Their  prevalence  was  chiefly  attrib¬ 
utable  to  the  fact  that  through  the  history  of  the  city 
political  influence  had  been  the  dominant  factor  in  deter¬ 
mining  appointments,  increases  and  promotions. 

“The  same  influences  which  had  brought  about  inequali¬ 
ties  in  salaries  had  also  permeated  the  civil  service  in  even  a 
more  serious  way.  Constant  pressure  upon  public  officers 
for  a  long  period  of  years  to  give  positions  to  political  de¬ 
pendents  had  developed  a  controlling  motive  in  governmental 
affairs.  This  motive  was  not  to  do  work  with  as  few  em¬ 
ployes  as  possible,  but  to  create  and  fill  as  many  positions 
as  the  board  of  estimate  and  the  board  of  aldermen  could 
be  persuaded  to  establish.” 

The  following  excerpt  from  a  report  of  the  senate  committee 
on  civil  service  of  the  State  of  New  York — a  committee  created 
primarily  to  standardize  conditions  of  employment — to  the  senate 
under  date  of  April  19,  1915,  is  even  more  significant: 

“In  the  history  of  the  state  government  there  has  never 
been — and  there  is  not  at  the  present  time — an  exact  or 
logical  basis  for  fixing  salary  rates  or  titles  of  positions. 
Standards  of  compensation  for  specified  kinds  of  work  as  a 
basis  for  making  salary  appropriations  are  unknown.  Fur¬ 
thermore,  positions  are  created  for  the  most  part  without 
any  definition  of  the  work  requirements  or  any  real  under¬ 
standing  of  the  work  or  needs  to  be  served  thereby.  Civil 

13 


2 


STANDARDIZATION  OF  PUBLIC  EMPLOYMENTS 


service  employments  are,  from  the  viewpoint  of  salary  stand¬ 
ards  and  related  work  conditions  in  a  chaotic  state.  The 
titles  of  civil  service  positions  are  misleading.  Similar  titles 
are  applied  to  positions  entirely  different  in  character;  dif¬ 
ferent  titles  are  attached  to  similar  positions.  The  greatest 
disparity  in  compensation  exists  with  respect  to  work  of  the 
same  character  or  grade.  Efficient  service  of  a  high  grade, 
in  a  very  large  number  of  instances,  receives  but  a  low  (and 
inadequate)  rate  of  compensation;  service  of  a  low  grade  in 
an  equally  large  number  of  cases  receives  a  large  (and  exces¬ 
sive)  rate  of  compensation.  In  other  words,  compensation 
bears  little  reference  to  the  service  rendered.  In  addition, 
the  problem  of  superannuation  has  been  given  little  or  no 
thought.” 

The  prevalence  of  injustice  arising  from  such  irregularities 
and  inequalities  of  employment  conditions — which  permeated 
the  entire  system  of  civil  service  control — deadened  the  spirit 
and  loyalty  of  the  individual  employes  and  impaired  their  effi¬ 
ciency. 

The  general  looseness  in  practice  with  respect  to  the  creation 
of  positions  and  the  fixing  of  salary  rates  and  other  related  work 
conditions  were  responsible  for  wasteful  expenditures  greatly  in 
excess  of  the  amount  of  overpayment  in  salary.  This  was  true 
because  the  individual  employes  represented  the  machinery  of 
government  and  to  the  extent  that  they  were  inefficient,  disloyal 
or  indifferent  the  processes  of  the  entire  machine  were  retarded 
or  misdirected.  A  striking  characterization  of  the  extent  to 
which  looseness  in  employment  regulations  made  for  looseness 
and  waste  in  all  the  activities  of  government  is  contained  in  the 
report  of  the  senate  committee  on  civil  service  referred  to  above: 

“This  lack  of  uniformity  with  respect  to  compensation 
and  lack  of  exact  definition  of  duty  have  in  themselves  led 
to  injustice  and  waste.  Overlapping  of  jurisdiction  of  em¬ 
ployes  within  an  office  has  resulted  in  wholly  unnecessary 
duplication  of  work.  Confusion  in  office  and  field  practice, 
inconsistencies  and  lost  motion  are  found  in  every  di¬ 
vision  of  service.  Furthermore,  these  irregularities  which 
in  themselves  represent  waste,  bear  close  relation  to  even 
more  wasteful  conditions.  For  they  indicate  a  general  laxity 
and  looseness  of  administration  which  have  multiplied  em¬ 
ployments  wholly  without  reference  to  the  service  needs.” 

The  abuses  and  conditions  as  characterized  above  developed 
from  causes  for  which  the  civil  service  commission  as  an  admin¬ 
istrative  agency  was  in  but  small  part  responsible.  The  civil 

14 


INEQUALITIES  IN  OLD  EMPLOYMENT  METHODS 


service  commission,  however,  had  been  indifferent  to  its  oppor¬ 
tunity.  In  some  cities  and  states  this  administrative  agency 
had  been  completely  dominated  by  political  interests  which 
resulted  in  injustice  and  abuse.  This  contributed  in  no  small 
part  to  the  urgent  need  for  reform. 

For  example,  the  civil  service  commission  is  directed  to  classify 
the  service.  And  yet  the  titles  of  employments  in  most  cities 
are  misleading  rather  than  informing.  Municipal  functions  and 
activities  have  expanded  and  simple  functions  once  properly 
performed  by  employes  under  old  titles  have  become  so  complex 
that  the  old  title  fails  entirely  to  differentiate  the  importance 
of  the  employe’s  responsibility.  To  cite  an  illustration  of  the 
indifference  of  the  civil  service  commission  to  this  important 
function: — the  commission  of  a  large  city  of  the  State  of  New 
York  neglected  for  several  years  to  revise  a  classification  which 
was  wholly  obsolete  and  inadequate  during  that  period,  admit¬ 
ting  the  need  for  change  but  excusing  itself  on  the  ground  that 
conditions  were  so  bad  that  nothing  short  of  a  complete  over¬ 
hauling  should  be  undertaken  and  the  commission  did  not  have 
the  time  nor  the  equipment  with  which  to  make  such  an  inten¬ 
sive  study. 

Again,  the  civil  service  commissions  have,  for  the  most  part, 
been  charged  with  the  regulation  and  control  of  promotions 
and  in  respect  thereto  have  been  directed  or  empowered  to  estab¬ 
lish  efficiency  records  which  would  accurately  determine  and 
record  the  relative  efficiency  of  individual  employes  engaged  in 
related  work.  From  the  viewpoint  of  the  manager,  it  is  almost 
essential  in  the  apportionment  of  tasks  and  the  working  out  of 
rewards  for  efficient  service  as  well  as  of  penalties  for  inefficiency, 
that  means  be  provided  for  determining  who  are  incompetent 
and  inefficient  and  stand  in  the  way  of  getting  the  best  re¬ 
sults  obtainable  for  a  given  expenditure  of  money.  From  the 
viewpoint  of  the  personnel  it  is  equally  essential  that  each 
employe  should  be  furnished  with  a  reviewable  record  of  his  con¬ 
duct  as  an  assurance  against  encroachments  upon,  or  indifference 
to,  his  interest  by  the  manager. 

And  yet,  in  many  cities,  there  has  been  little  or  no  effort  made 
to  install  or  maintain  these  devices  as  a  part  of  the  system  of 
civil  service  control. 


15 


CHAPTER  IV 


THE  WORK  AND  PURPOSES  OF  STANDARDIZATION 

AGENCIES 


In  order  to  obtain  the  necessary  information,  and  to  furnish 
grounds  for  recommendations  for  final  action  consistent  with 
an  intelligent  handling  of  the  subject,  special  staffs  have  been 
organized  in  several  American  cities,  notably  in  New  York, 
Chicago,  Milwaukee,  Pittsburgh,  and  Los  Angeles,  and  in  the 
State  of  New  York  and  the  Federal  Government.  The  history 
of  accomplishments  in  each  of  these  cities  will  be  traced  in  the 
chapters  of  Part  II.  The  work  and  purposes  of  these  agencies 
are  worthy  of  brief  review  from  two  aspects,  namely,  the  scientific 
or  academic  and  the  practical.  The  scientific  relates  to  the 
methods  of  research  and  classification  used  to  formulate  basic 
principles  and  standards;  the  practical  relates  to  the  method  of 
applying  these  principles,  the  machinery  used  and  the  results  ob¬ 
tained.  The  former  represents  a  series  of  research  experiments 
extending  over  the  last  ten  years  in  order  to  determine  and  present 
sound  principles  and  standards  of  classification  and  appraisal. 
The  latter  represents  the  attempts  to  apply  these  standards  in 
the  making  of  appraisals  and  to  use  information  developed  in  rela¬ 
tion  thereto  for  other  purposes,  in  order  to  improve  existing 
conditions. 

In  characterizing  the  standardization  work  throughout  the 
country  in  its  dual  aspect,  it  may  be  said  that  the  methods  of 
classification  and  technical  processes  which  have  evolved  from 
the  experiments  represent  not  only  a  sincere  effort,  but  also  a  real 
contribution  to  public  research.  It  may  further  be  said  that  the 
plans  and  procedure  which  have  been  evolved  represent,  in  some 
respects,  a  more  advanced  system  of  employment  control  than 
obtains  in  private  practice. 

Attempts  to  apply  this  system,  however,  by  way  of  making 
readjustments  of  existing  salary  rates  and  conditions  of  employ¬ 
ment  have  marked  the  introduction  of  new  uses  of  standardiza¬ 
tion  material,  and  a  new  factor  in  municipal  management. 

16 


WORK  AND  PURPOSES  OF  STANDARDIZATION  AGENCIES 


While  the  intensive  work  on  this  problem  has  been  carried  on 
almost  simultaneously  at  a  number  of  places,  scarcely  more  than 
a  beginning  has  been  made  and  experience  shows  that  there  is 
grave  danger  that  the  whole  movement  will  be  misunderstood 
because  of  the  use  made  of  the  information  for  purposes  other 
than  standardization  proper.  It  has  been  this  alleged  perver¬ 
sion  of  the  information  developed  that  has  caused  civil  servants 
to  feel  that  greater  protection  is  afforded  by  the  organizations 
through  which  existing  inequities  have  been  produced  than  by 
co-operation  with  those  who  are  seeking  to  “  standardize.” 
This  has  arisen  from  a  somewhat  natural  extension  of  the  work 
of  “standardization”  to  include  certain  tasks  of  “budget  mak¬ 
ing”  on  the  one  hand  and  tasks  of  “administration”  on  the 
other.  This  subject  will  be  discussed  in  a  subsequent  chapter. 

Summary  Statement  of  Objects  of  Standardization 

The  standardization  movement  has  as  its  primary  objects  the 
following: 

1.  The  establishment  of  a  basis  for  fixing  salary  rates  in 

relation  to  work  values. 

2.  The  establishment  of  standard  factors  of  education  or 

experience  for  each  class  and  grade  of  employment 
prescribing  conditions  which  must  be  met  by  persons 
preliminary  to  appointment. 

3.  The  establishment  of  standard  titles  and  work  require¬ 

ments  for  each  class  and  grade  of  employment  prescrib¬ 
ing  conditions  which  must  be  met  or  conformed  to  after 
appointment. 

4.  T  he  establishment  of  standards  to  govern  promotions, 

transfers  and  other  subjects  of  employment  control. 

5.  The  establishment  of  a  formal  procedure  which  shall 

currently  inform  the  public  and  the  official  organiza¬ 
tion  of  conditions  governing  entrance  to  the  public 
service  and  advancement  therein. 

Up  to  the  present  time,  the  salaries  of  government  employes 
have,  for  the  most  part,  been  determined  with  little  reference  to  the 
market  value  of  the  work  performed.  It  is  a  matter  of  current 
knowledge  that,  in  a  large  number  of  cases,  salaries  are  fixed  by 
accident,  expediency  or  political  preference.  Increases  in  salary 
have  been  irregular,  uncertain  and  too  often  without  regard 
to  the  relative  merits  of  the  employes. 

The  standardization  of  public  employments  is  based  on  the 
principle  that  payment  for  personal  service  shall  be  regulated 

17 


STANDARDIZATION  OF  PUBLIC  EMPLOYMENTS 


according  to  the  value  of  such  service  to  the  government.  It 
provides  for  a  definite  classification  according  to  the  kind  and 
quality  of  work  performed.  This  classification  includes  specifica- 
tions  which  will  accurately  differentiate  one  grade  of  work  from 
another  and  enable  administrative  officials  to  grade  compensation 
according  to  the  actual  division  of  responsibility  in  the  office 
affected. 

The  standardization  program  includes  also  the  establishment 
of  standard  titles,  work  requirements,  qualifications,  etc.  as  a 
basis  for  effective  civil  service  control.  In  short,  it  is  designed 
to  vitalize  civil  service  administration  by  formulating  regulations 
to  govern  civil  service  entrance  examinations,  promotional 
examinations  and  other  subjects  of  employment  control  which 
are  essentially  civil  service  problems. 

The  standardization  program  provides  a  definite  solution  for 
these  civil  service  problems  by  formulating: 

(a)  A  comprehensive  classification  of  positions  which  will 
not  only  relate  title  to  work  and  compensation  but 
also  set  forth  definitely  the  policy  with  respect  to  ex¬ 
emption  and  non-exemption  from  competition. 

(b)  A  code  of  standard  qualifications  and  regulations,  with 
respect  to  entrance  to  the  public  service,  which  may  be 
followed  in  advertising  and  conducting  examinations. 

(c)  A  code  of  regulations  and  standard  qualifications  to  be 
observed  in  making  promotions  and  transfers  and  keep¬ 
ing  individual  efficiency  records. 

Civil  service  work  up  to  the  present  time  has  assisted  and 
benefited  employes  only  through  the  adoption  of  protective  and 
preventive  measures.  Little  has  been  done  of  a  positive 
nature  to  assure  to  each  employe  a  career  in  public  service 
proportionate  to  his  ability.  This  development  should  be  the 
result  of  salary  standardization  work.  When  standards  are 
adopted  and  published,  they  furnish  to  present  and  prospective 
employes  information  as  to  the  conditions  of  employment  in  the 
public  service  and  give  assurance  that,  if  properly  administered, 
unequal  conditions  of  appointment  and  promotion  will  be 
abolished. 

Standards  furnish  a  program  to  be  followed  in  establishing  and 
enforcing  entrance  and  promotional  regulations.  They  establish 
definite  lines  of  promotion  and  provide  proper  regulations  govern¬ 
ing  increases.  They  provide  rewards  for  individual  efficiency 
and  seniority  of  service,  at  the  same  time  affording  adequate 

18 


WORK  AND  PURPOSES  OF  STANDARDIZATION  AGENCIES 


protection  to  the  community.  They  make  possible  the  opening 
up  of  promotional  examinations  to  a  larger  number,  by  grouping 
those  positions  which  are  similar  in  work  requirements.  They 
encourage  the  establishment  of  service  schools  or  such  other 
provision  as  the  government  may  make  for  the  purpose  of 
giving  adequate  training  for  public  service.  Standards  make 
conditions  of  employments  more  certain  and  attractive,  they 
make  the  employes  contented  and  insure  their  co-operation  and 
loyalty  and  attract  to  the  public  service  a  more  highly  trained 
and  competent  class  of  persons. 


19 


CHAPTER  V 


THE  SCIENTIFIC  SIDE  OF  STANDARDIZATION 


The  first  steps  taken  to  classify  public  employments  and  the 
attempts  made  thereunder  to  bring  about  uniformity  of  practice 
were  disconnected  and  fragmentary  and  touched  upon  but  few 
phases  of  employment  control.  Little  was  accomplished  in  regard 
to  the  scientific  classification  of  the  civil  service  during  the  twenty 
or  twenty-five  years  which  preceded  the  organized  efforts  in 
several  communities  to  work  out  a  comprehensive  and  scientific 
scheme  of  standards. 

Establishment  of  Legal  Classes 

The  United  States  civil  service  act  of  1883  and  laws  supple¬ 
mentary  thereto,  segregated  the  civil  service  into  legal  divisions 
known  as  the  “Unclassified,”  the  “ Classified ”  and  the  “Labor” 
services.  The  unclassified  division  represented  that  group  of 
employments  which  were  subject,  for  the  most  part,  to  the  con¬ 
current  appointive  power  of  the  President  and  the  Senate  and  not 
subject  to  the  principle  of  competitive  examinations.  The  sec¬ 
ond,  the  classified  service,  represented  that  group  of  employments 
to  which  competitive  examinations  did  apply,  and  was  subject  to 
certain  exemptions  known  as  exempt  positions.  The  labor  serv¬ 
ice  represented  that  group  of  positions  covering  work  of  a 
manual  and  unskilled  nature  to  which  the  unit  principle  applied, 
and  was  subject  to  registration  rather  than  examination.  By 
action  of  legislative  bodies  a  similar  legal  classification  has  been 
provided  in  most  of  the  states  and  cities  where  civil  service  con¬ 
trol  has  been  installed.  For  example,  the  broad  division  of 
classified  and  unclassified  service  exists  in  the  State  (and  hence  in 
the  cities)  of  New  York. 

The  classified  service  is  generally  divided  into  four  divisions  as 
follows: 

A.  Exempt  class 

B.  Competitive  class 

C.  Non-competitive  class 

D.  Labor  class 


20 


THE  SCIENTIFIC  SIDE  OF  STANDARDIZATION 


The  two  broad  divisions,  classified  and  unclassified,  indicate 
the  limits  within  which  civil  service  control  should  operate,  and 
the  sub-divisions  of  the  so  called  classified  service  indicate  the 
lines  along  which  the  civil  service  commission  may  make  fur¬ 
ther  refinements  for  the  purpose  of  prescribing  and  conducting 
examinations. 

While  the  establishment  of  these  legal  divisions  imposed  cer¬ 
tain  restrictions  upon  the  employment  of  persons  and  thereby 
prevented  certain  abuses  which  had  formerly  obtained,  the  dis¬ 
tinctive  units  of  the  several  classes  of  employment  were  not 
recognized  and  no  exact  basis  was  furnished  for  the  extension 
and  multiplication  of  civil  service  practice  in  keeping  with  new 
ideas,  and  methods  of  administration. 

Subject  to  the  arbitrary  division  superimposed,  the  civil  serv¬ 
ice  commission  was  empowered  to  establish  titles  descriptive  of 
employment.  The  titles  first  adopted  were  for  the  most  part 
descriptive  of  classes  of  employment.  In  the  early  civil  service 
classifications  of  the  United  States  government  and  of  the  State 
of  New  York  appeared  such  titles  as  “  Clerk,”  “  Engineer,’’ 
“Artisan”  and  “ Laborer.”  These  general  titles  all  obtained,  for 
the  most  part,  with  respect  to  positions  for  which  examinations 
should  be  held  and  were  intended  to  furnish  or  suggest  work 
requirements  and  qualifications  of  the  persons  filling  such  posi¬ 
tions.  In  other  words,  they  were  suggestive  of  the  scope  and 
content  of  civil  service  entrance  examinations.  For  the  positions, 
not  statutory  in  character,  for  which  examinations  were  not  con¬ 
ducted,  or  in  other  words,  for  those  positions  in  the  competitive 
group  which  were  exempted  from  examination,  specialized  titles 
were  used  to  identify  positions  of  a  so-called  confidential 
character. 

Employment  control  in  its  broader  aspects  was  not  included 
in  the  plans  of  the  civil  service  reformers  of  the  early  days,  but 
the  usefulness  of  specialized  titles,  for  the  purpose  of  indicating 
concretely  the  requirements  of  the  various  offices  and  employ¬ 
ments,  became  obvious  and  a  multiplication  of  specialized  titles 
followed.  In  later  classifications,  the  broad  divisions  of  employ¬ 
ment  such  as  clerical,  engineer,  artisan,  etc.,  were  broken  up 
into  groups  representing  what  purported  to  be  distinct  lines1  of 

1  Fourth  Annual  Report  U.  S.  Civil  Service  Commission,  1887-1888,  Ap¬ 
pendix,  Table  No.  4 — “Appointments,  etc.,”  Pages  596  to  677  inclusive; 
see  also  other  early  U.  S.  and  New  York  State  Civil  Service  Commission  Re¬ 
ports. 


21 


STANDARDIZATION  OF  PUBLIC  EMPLOYMENTS 


work  within  such  classes  of  employment  and  hence  we  find  such 
titles  as  the  following: 

Assistant  Pension  Examiner 
Principal  Pension  Examiner 
Special  Pension  Examiner 
Medical  Examiner 
Physician 

Patent  Examiner’s  Clerk 

Proof-reader 

Reviser 

Copyist  of  Topographical  Drawings 
Copyist  of  Mechanical  Drawings 
Mechanical  Engineer 
Topographer 

It  is  true  that  the  introduction  of  specialized  titles  was  intended 
to  unstandardize  conditions  of  employment  as  much  as  to  stand¬ 
ardize,  for  fictitious  titles  were  set  up  almost  ad  infinitum  as  a 
basis  for  fictitious  salary  rates.  But  the  basic  idea  in  the 
specialization  of  titles  furnished,  in  theory,  an  instrument  of 
greater  control  than  obtained  under  the  earlier  method  of  classi¬ 
fication. 

As  the  constructive  side  of  civil  service  received  recognition 
the  need  was  felt  for  a  means  of  enforcing  uniformity  of  prac¬ 
tice  with  respect  to  the  appointment,  advancement  and  control 
of  civil  servants.  The  establishment  of  standards  which  the 
executive  would  be  compelled  to  apply  was  the  remedy  for  this 
condition.  The  need  was  also  felt  for  greater  freedom  of  action 
in  matters  of  employment  control.  In  other  words,  the  neces¬ 
sity  was  apparent  for  provisions  which  would  standardize 
conditions  and  at  the  same  time  make  for  less  rigidity  in  em¬ 
ployment  control.  The  policy  developed,  as  a  result  of  the 
recognition  of  these  factors,  calls  for  the  establishment  by 
legislative  or  finance-controlling  bodies  of  basic  standards  with 
respect  to  conditions  of  employment. 

The  efforts  to  evolve  such  a  body  of  standards,  as  devices 
of  control  over  the  executive,  are  the  important  historical 
events  of  the  last  decade  which  might  be  regarded  as  the  era 
of  standardization.  During  the  first  five  years  of  this  period 
the  basic  standards  took  the  form  of  so-called  specifications  of 
the  titles,  work  requirements,  qualifications  and  compensation 
of  the  distinctive  classes  of  employments.  During  the  second 
five  years  of  this  period  the  basic  standards  took  the  form  of 
specifications  of  the  titles,  work  requirements,  qualifications  and 

22 


THE  SCIENTIFIC  SIDE  OF  STANDARDIZATION 


compensation  of  the  distinctive  lines  of  work ,  thus  using  a  much 
narrower  unit  of  classification  in  prescribing  the  governing  rules. 

Specification  Based  upon  Requirements  of  Class  of  Employment 

The  introduction  of  a  specification,  setting  forth  the  service 
under  titles  descriptive  of  classes  of  employment  and  setting  up 
specifications  of  duties,  qualifications  of  incumbents,  salary  rates 
and  basis  of  advancement  and  salary  increases,  represents  the 
first  organized  effort  to  standardize  conditions  of  employment. 
This  was  the  first  contribution  to  the  standardization  program. 

Under  this  plan,  the  entire  civil  service  of  Chicago  composed 
of  more  than  30,000  employes,  was  grouped  under  ten  divisions, 
called  services,  as  follows: 

Medical 

Engineering 

Clerical 

Library 

Inspection 

Fire 

Police 

Operating  Engineer 

Supervising 

Labor 

Each  service  represents  the  basic  unit  of  classification  and  is 
divided  into  a  number  of  grades  according  to  the  natural  grada¬ 
tion  of  work  requirements  and  responsibility.  Each  grade,  in 
other  words,  represents  a  prescribed  standard  of  work  with  a  se¬ 
ries  of  salary  rates,  the  minimum  and  maximum  of  which  are  the 
limits  of  compensation  for  such  work. 

The  type  of  classification  and  specification  used  by  Chicago  is 
shown  in  Exhibit  4  (page  117). 

Distinctive  Feature  oj  Chicago  Classification 

The  distinctive  feature  of  this  classification  is  the  use  of  the 
class  of  employment  as  a  basis  of  grouping.  Thus,  for  example, 
in  the  clerical  service  are  included  clerks  of  all  kinds  such  as  book¬ 
keepers,  recorders,  examiners,  etc. 

The  City  of  Milwaukee,  which  organized  a  special  staff  to 
standardize  employments  in  1912  and  devoted  the  greater  part 
of  that  year  to  a  standardization  inquiry,  applied  the  principle 
formulated  by  Chicago.  The  plan,  however,  was  not  put  into 
operation  in  full.  Other  western  cities  have  experimented  in 
standardization  work  along  the  lines  laid  down  by  Chicago. 

23 


STANDARDIZATION  OF  PUBLIC  EMPLOYMENTS 


Specifications  Based  upon  Requirements  of  Line  of  Work 

New  York  City,  by  action  of  its  financial  body,  the  board  of 
estimate  and  apportionment,  under  date  of  Oct.  31,  1910,  began 
the  standardization  of  its  employments.  A  special  staff  re¬ 
porting  to  the  board  of  estimate  and  apportionment  was  pro¬ 
vided.  Preliminary  observations  were  made  in  the  year  1912. 
The  intensive  investigation,  however,  was  postponed  until  the 
following  year.  The  conduct  of  this  investigation  and  its  pres¬ 
ent  status  are  made  the  subject  of  a  subsequent  chapter. 

The  initial  work  of  the  New  York  City  investigation  was  based 
upon  the  methods  used  by  Chicago.  The  development  of  the 
study  however,  led  to  a  reconsideration  of  the  basic  plan  of  in¬ 
vestigation.  The  following  outline  indicates  the  scope  of  the 
preliminary  study  which  was  conducted  for  the  purpose  of  de¬ 
termining  the  proper  plan  of  classification  and  specification. 

1.  Systems  of  civil  service  classification  used  in  the  large 

and  representative  American  cities  were  obtained  and 
studied. 

2.  The  general  character  of  the  civil  service  of  New  York 

City  was  studied;  this  study  was  made  on  the  basis 
of: — 

General  classification  used  by  the  civil  service  com¬ 
mission 

Distribution  of  positions  shown  in  the  annual  budget 

Conditions  of  organization  and  distribution  of  per¬ 
sonnel  as  shown  in  the  charter  and  supporting, 
material  prepared  by  the  standardization  com¬ 
mittee. 

3.  A  code  of  regulations,  grouping  and  classifying  positions 

was  prepared  as  a  basis  for  discussion  with  persons 
qualified  to  criticise  and  suggest. 

4.  The  general  character  of  employment  practice  in  certain 

large  industrial  concerns  was  reviewed  on  the  basis  of 
information  already  collected. 

A  similar  study  of  public  employments  was  begun  in  the  city 
of  Pittsburgh,  largely  through  the  effect  of  the  inauguration  of 
the  New  York  City  study.  Representatives  of  the  Bureau  of 
Municipal  Research,  which  had  acted  in  an  advisory  capacity 
on  the  New  York  City  work,  supervised  the  major  part  of  the 
Pittsburgh  investigation.  As  the  preliminary  study  was  con¬ 
ducted  in  New  York  at  the  same  time,  the  results  of  the  observa¬ 
tions  in  each  city  were  brought  to  the  attention  of  and  considered 
by  both  cities.  As  a  result  of  these  observations  an  agreement 

24 


THE  SCIENTIFIC  SIDE  OF  STANDARDIZATION 


was  reached  between  the  committee  of  New  York  City,  at 
that  time  under  the  direction  of  George  F.  Tirrell,  now  director 
of  the  bureau  of  standards,  and  the  standardization  commit¬ 
tee  of  Pittsburgh.  Both  committees  agreed  that  a  classification 
to  be  of  any  value  in  fixing  compensations  of  employes  or  regulat¬ 
ing  and  determining  the  condition  of  appointment,  promotion, 
transfer,  etc.,  must  recognize  the  following  distinctive  require¬ 
ments  for  each  position  or  group  of  positions. 

Distinctive  requirements  of  training  and  experience  as  a 
basis  for  entrance  into  the  civil  service  and  the  experience  of 
the  civil  service  commission  in  attracting  fit  applicants. 

Distinctive  requirements  as  a  basis  for  promotion,  trans¬ 
fer,  etc.,  after  appointment. 

Distinctive  market  values  or  standards  of  compensation 
governing  the  class  of  work. 

Investigation  demonstrated  that  the  line  of  work  embracing 
those  primary  elements,  which  distinguished  one  calling  from 
another,  was  the  largest  unit  which  could  be  used  for  specifying 
these  distinctive  conditions.  To  have  used  a  broad  class  of 
positions  would  have  simplified  the  classification  materially. 
It  was  concluded,  however,  that  specifications  covering  the  vari¬ 
ety  of  work  embraced  in  a  class  would  be  so  general  in  character 
as  to  make  a  classification  worthless  except  for  statistical  or  in¬ 
formational  purposes. 

Experimental  appraisals  were  conducted  for  the  purpose  of 
determining  the  relative  merits  of  the  two  methods  of  classifica¬ 
tion.  It  was  found  that  when  the  specification  covered  a  group 
of  positions  in  general  terms,  the  appraisal  consisted  of  an  opin¬ 
ion  of  uncertain  and  unsupported  character.  On  the  other  hand 
it  was  shown  that  where  the  specification  included  the  require¬ 
ments  of  but  a  single  line  of  work,  the  comparative  experience, 
public  and  private,  would  furnish  standards  sufficiently  definite 
and  concrete  to  support  an  exact  appraisal. 

Differences  between  Chicago  and  New  York  Classifications 

The  difference  in  the  refinement  of  classification  between 
Chicago,  representing  one  school,  and  New  York  City  and  Pitts¬ 
burgh  representing  another,  is  indicated  in  the  relative  number  of 
groups  used  in  these  cities — each  group  representing  the  basic 
unit  of  classification  and  appraisal. 

25 


STANDARDIZATION  OF  PUBLIC  EMPLOYMENTS 


OUTLINE  OF  GROUPS 


The  term  “Group”  being  the  symbol  used  to  identify  the  basic  unit 

of  classification  and  appraisal 


Chicago 

Pittsburgh 

New  York  City 

Group 

(“Service”) 

Est.  Ns.. 
Distinctive 
Titles 

Group 
(“Group”  & 
“Sub-Group”) 

Est.  No. 

Distinctive 

Titles 

Group 

(“Group”) 

Est.  No. 

Distinctive 

Titles 

Medical 

56 

Medical 

Bacteriologist 

3 

Physician 

12 

Chemist  &  Physi- 

cist 

5 

Nurse 

4 

Dentist 

3 

Research 

7 

Dietitian 

3 

Nurse 

10 

Pathologist 

3 

Pharmacist 

3 

Physician 

24 

Veterinarian 

2 

Apprentice  Pharma- 

cist 

11 

Pupil  Nurse 

1 

Engineering 

87 

Engineering 

22 

Engineer 

26 

Professional  &  Sci- 

Draftsman 

3 

entific  Assts. 

4 

Instrumentman 

2 

Laboratory  Assts. 

14 

Clerical 

76 

Clerk 

13 

Bookkeeper 

3 

Library 

13 

Stenographic  & 

Cashier 

5 

Typing 

5 

Clerk 

11 

Messenger 

2 

Dept.  Librarian 

3 

Bookkeeper 

3 

Interpreter 

2 

Secretarial 

1 

Messenger 

3 

Library  (Service) 

9 

Private  Secretary 

3 

Purchasing  Agent 

5 

Stenographer 

9 

Telephone  Operator 

1 

Typist 

4 

Title  Examiner 

3 

Inspection 

98 

Health  &  Sanita- 

Inspector  of  Bldgs. 

23 

tion 

13 

Health  Inspector 

7 

Regulation  of  Pub- 

Insp.  of  Licenses 

3 

lie  Service 

10 

Insp.  of  Public  Wks. 

11 

Construction  &  Re- 

Insp.  Wgts.  & 

pair 

7 

Measures 

3 

Delivery  &  Sup- 

Miscellaneous 

plies 

2 

Inspector 

3 

Insp.  of  Combusti- 

bles  &  Blasting 

5 

Insp.  of  Electricity 

&  Lighting 

5 

Insp.  of  Repairs 

&  Supplies 

9 

26 


THE  SCIENTIFIC  SIDE  OF  STANDARDIZATION 


OUTLINE  OF  GROUPS — Continued 


Chicago 

Pittsburgh 

New  York  City 

Group 

("Service”) 

Est.  No. 

Distinctive 

Titles 

Group 
("Group”  & 
"Sub-Group”) 

Est.  No. 

Distinctive 

Titles 

Group 

("Group”) 

Est.  No. 

Distinctive 

Titles 

Police 

11 

Police  (Service) 

Inspector 

* 

Captain 

* 

Lieutenant 

* 

Sergeant 

* 

Patrolman 

* 

Recruit 

* 

Fire 

16 

Fire  (Service) 

Fire  (Service) 

* 

Operating 

Operating  Engineer 

5 

Stationary  Engine- 

7 

Engineer- 

man 

ing 

25 

Marine  Engineman 

5 

Supervising 

64 

Executive 

2 

Executive  Council 

Managerial 

3 

Commissioner 

2 

Deputy  Commis- 

sioner 

1 

Executive  Secy. 

1 

Member,  Board  of 

Estimate  &  Ap- 

portionment 

* 

Legislative  (Service) 

* 

Skilled  Labor 

216 

Special  Labor 

13 

Bookbinder 

1 

Builder 

9 

Diver 

3 

Electrical  Worker 

5 

Fire  Telegraph 

Dispatcher 

3 

Leather  Worker 

2 

Marine  Officer 

6 

Mechanic 

12 

Metal  Worker 

13 

Motor  Driver 

5 

Painter 

6 

Photographer 

1 

Plumber  and  Pipe- 

fitter 

3 

Printer 

3 

Rockworker 

1 

Upholsterer 

2 

Woodworker 

10 

Labor 

13 

General  Labor 

1 

Cleaner 

* 

Supervising  Labor 

5 

Elevatorman 

* 

Park  Worker 

♦ 

Supervisor  of  Labor 

* 

Unskilled  Laborer 

* 

Misc.  Laborer 

* 

*  Specifications  incomplete. 


27 


STANDARDIZATION  OF  PUBLIC  EMPLOYMENTS 


OUTLINE  OF  GROUPS — Continued 


Chicago 

Pittsburgh 

New  York  City 

Group 

(“Service”) 

Est.  No. 

Distinctive 

Titles 

Group 
(“Group”  & 
“Sub-Group”) 

Est.  No. 

Distinctive 

Titles 

Group 

(“Group”) 

Est.  No. 

Distinctive 

Titles 

Tax  Assessor 

1 

Civil  Service  Exam- 

Gov’t  Efficiency 

1 

iner 

9 

C.  S.  Investigator 

2 

Claim  Investigator 

2 

Fire  Investigator 

4 

Deputy  Tax  Com’r 

8 

Municipal  Ex’m’r 

5 

Misc.  Investigator 

4 

Religious,  Educa- 

tional  &  Social 

Welfare 

3 

Probation  Officer 

4 

Attendance  Officer 

4 

Social  Investigator 

4 

Industrial  Instr. 

4 

Recreation  Instr. 

10 

Miscellaneous 

1 

Instructor 

1 

Chaplain 

1 

Exempt 

Legal 

3 

Lawyer 

6 

Judge  or  Justice 

* 

Law  Clerk 

4 

Accountant 

5 

Accountant 

4 

Statistical 

2 

Statistician 

3 

Computer 

2 

Technical  &  Artisan 

11 

Artisan 

3 

Guardian  &  Attend- 

Culinary  Worker 

7 

ant 

9 

Helper 

7 

Hospital  Attdt.  & 

Orderly 

3 

Institutional  Clk. 

2 

Institutional  Super- 

visor 

8 

Laundryman 

2 

Prison  Keeper 

8 

Bridge  Tender 

2 

Caretaker 

13 

Court  &  Legislative 

Attdt. 

3 

Dock  Master 

2 

Miscellaneous  Insti- 

tutional  Worker 

2 

Misc.  Custodian 

1 

28 


THE  SCIENTIFIC  SIDE  OF  STANDARDIZATION 


OUTLINE  OF  GROUPS — Concluded 


Chicago 

Pittsburgh 

New  York  City 

Group 

(“Service”) 

Est.  No. 

Distinctive 

Titles 

Group 
(“Group”  & 
“Sub-Group”) 

Est.  No. 

Distinctive 

Titles 

Group 

(“Group”) 

Est.  No. 

Distinctive 

Titles 

Storekeeper 

2 

Storekeeper 

4 

Watchman 

4 

Watchman 

1 

Animal  Keeper 

2 

Animal  Keeper 

6 

Recruit 

1 

Street  Cleaner 

8 

Refuse  Collector 

12 

Motor  Refuse  Col- 

lector 

4 

Refuse  Disposer 

6 

Supervisor 

16 

Architect 

6 

Forester  &  Ento- 

mologist 

2 

Arborculturist 

1 

Mscl.  Sub-profes- 

sional  Worker 

1 

3 


29 


STANDARDIZATION  OF  PUBLIC  EMPLOYMENTS 


Outline  of  Program  of  Investigation 

The  methods  used  in  standardization  work  in  the  several  cities 
are  recited  in  subsequent  chapters  of  this  volume.  The  earliest 
investigations  followed  lines  which  were  largely  experimental, 
as  the  problem  was  novel  in  many  respects.  Later  investigators 
profited  by  the  experience  of  the  pioneers,  discarding  unsound 
methods  and  evolving  more  advanced  and  scientific  schemes  of 
classification. 

The  use  of  personal  service  cards  as  a  basis  for  obtaining  infor¬ 
mation  and  as  a  method  of  current  revision,  the  use  of  functional 
organization  charts  to  reflect  the  distribution  of  functions  and 
personnel  and  relationships  between  organization  units,  the  de¬ 
velopment  of  simple  methods  of  controlling  and  co-ordinating 
field  studies  with  which  to  secure  a  broader  foundation  for  the  in¬ 
terpretation  of  materials,  the  examination  of  large  industrial, 
financial  and  other  corporations  in  order  to  obtain  information  as 
to  private  practice,  the  value  of  departmental  conferences  and 
interviews  and  the  methods  of  appraisal  are  the  principal  features 
of  the  program  developed. 

The  most  distinctive  feature  of  the  standardization  program 
is  that  which  relates  to  the  development  of  the  classification, 
including  the  preparation  of  scientific  specifications  and  defini¬ 
tions — and  the  making  of  appraisals.  The  following  is  an  outline 
of  the  specialized  procedure  which  in  one  form  or  another  has 
been  observed  in  formulating  a  scheme  of  classification  and  apply¬ 
ing  it  by  making  appraisals. 

Outline  of  Procedure  for  Classification  and  Appraisal 

1.  Preparation  of  plan  of  classification. 

(a)  Study  of  representative  classifications  of  states, 

counties  and  cities. 

(b)  Study  of  service  under  investigation  on  the  basis  of 

descriptive  material  available,  such  as: 

Civil  service  classification  of  employments,  de¬ 
scriptive  and  critical  data  on  organization  and 
personnel  published  by  investigative  or  depart¬ 
mental  agencies. 

(c)  Preparation  of  tentative  classification  groupings  as  a 

basis  for  discussion. 

(d)  Preliminary  study  of  private  practice  in  local  com¬ 

munity. 


30 


THE  SCIENTIFIC  SIDE  OF  STANDARDIZATION 


2.  Grouping  end  grading  of  positions  according  to  such  plan. 

(a)  Collection  of  descriptive  data  concerning  each  posi¬ 

tion. 

(b)  Preparation  of  charts,  outlines,  etc.  of  organization 

showing  distribution  of  functions  and  employes 

and  inter-bureau  relationships. 

(c)  Intensive  study  of  employment  conditions  in  private 

practice. 

(d)  Grouping  of  employes  according  to  service  by  con¬ 

sulting  work  sheets,  charts,  and  other  materials 

available. 

(e)  Grouping  of  employes  according  to  appropriate  com¬ 

pensation,  grade  and  rate. 

3.  Preparation  of  tentative  classification  and  report  on 

appraisals,  with  recommendations. 

4.  Preparation  of  final  report  or  classification  and  reporting 

on  appraisals,  with  recommendations. 

5.  Preparation  of  report  on  civil  service  administration  so  as 

to  co-ordinate  its  work  with  standardization  scheme. 

Relation  of  Specifications  to  Executive  Enforcement  of  Regulations 

It  should  be  noted  that  the  so-called  specifications  of  the 
standards  of  personal  service  represent  the  basic  or  minimum 
requirements  imposed  by  the  legislative  or  finance-controlling 
body  upon  the  executive  to  insure  uniform  enforcement  of 
advanced  principles  of  civil  service  control.  It  will  devolve- 
upon  the  civil  service  commission  to  revise  its  rules  and  regu¬ 
lations  so  as  to  apply  the  new  standards.  It  may  be  said  that 
the  new  standards  contemplate  a  complete  reorganization  of  the 
methods  and  practices  of  civil  service  commissions  in  every 
department  of  their  activity. 


31 


CHAPTER  VI 


REVIEW  OF  THE  PRACTICAL  SIDE  OF  STANDARDI¬ 
ZATION;  THE  APPLICATION  OF  STANDARDS 


The  city  of  Chicago  may  be  said  to  be  the  pioneer  in  the 
standardization  of  public  employments  and  rates  of  pay.  The 
movement  was  inaugurated  March  5,  1909,  when  the  city 
council  authorized  the  establishment  of  an  efficiency  commis¬ 
sion  consisting  of  the  then  president  of  the  civil  service  com¬ 
mission,  chairman,  members  of  the  city  council,  heads  of 
departments,  and  citizens. 

Experience  of  Chicago 

The  Chicago  standardization  study  was  inaugurated  after 
a  period  of  general  agitation  for  better  city  government  and  a 
number  of  research  studies  which,  although  they  covered  only  a 
part  of  the  field,  had  made  startling  revelations  as  to  the  condition 
of  the  city’s  affairs.  It  came  as  the  immediate  result  of  the 
difficulties  encountered  by  the  finance  committee  of  the  city 
council  in  apportioning  funds  and  providing  adequate  salaries  for 
officers  and  employes,  and  the  obstacles  and  difficulties  encoun¬ 
tered  by  the  civil  service  commission  in  formulating  and  conduct¬ 
ing  examinations  and  determining  lines  of  promotion. 

The  purpose  and  functions  of  this  commission  as  set  forth  in 
the  governing  resolution  were  as  follows: 

“to  adjust  all  controversies  as  to  salary  and  civil  service 
grades,  to  fix  the  same  in  all  cases  in  which  they  have  not 
been  properly  determined,  to  recommend  uniform  salaries 
as  to  the  value  of  grades,  to  classify  the  inspection  service 
of  the  city  and  to  recommend  the  compensation  of  each 
class,  and  to  make  such  other  recommendations  as  its 
investigation  may  prompt  looking  to  greater  municipal 
efficiency.’  ’ 

The  commission  constituted  a  directing  board  of  investigators, 
the  work  being  outlined  and  supervised  by  the  chairman,  who  was 
immediately  in  charge  of  a  staff  of  experts  employed  for  that 

32 


THE  PRACTICAL  SIDE  OF  STANDARDIZATION 


purpose.  The  preliminary  work  incidental  to  formulating  a 
basis  of  standardization  and  taking  the  first  steps  toward  its 
application  consumed  the  greater  part  of  two  years.  The 
standards  were  officially  adopted  by  unanimous  action  of  the 
city  council  under  date  of  July  15,  1912.  The  adoption  of  the 
standards  contemplated  the  gradual  readjustment  of  conditions 
in  the  service  to  conform  to  the  standards  set  up. 

The  efficiency  commission  was  superseded  in  1913  by  the 
efficiency  division  of  the  civil  service  commission. 

Relation  of  the  Standardization  Agency  to  Other  Agencies 

It  is  important  to  note  the  relation  which  has  existed  between 
the  efficiency  division  of  the  civil  service  commission  and  the 
responsible  administrative  officials  of  Chicago  on  the  one  hand, 
and  the  relation  of  this  division  and  the  fiscal  agencies  of  the 
city  on  the  other. 

It  will  be  observed  that  the  resolution  creating  the  efficiency 
commission  empowered  it  not  only  to  reclassify  the  service  as  a 
basis  for  equalizing  rates  of  pay,  but  also  to  make  “such  other 
recommendations  as  its  investigation  may  prompt  looking  to 
greater  municipal  efficiency.”  Under  this  authority,  general  re¬ 
organization  studies  proceeded  hand  in  hand  with  standardization 
studies,  and  proposals,  initiated  by  the  commission  with  respect 
to  both,  were  received  and  acted  upon  by  the  finance  controlling 
body  at  the  budgetary  periods.  It  may  be  said  that  Chicago 
confused  and  intended  to  confuse  the  problems  of  standardization 
with  the  problems  of  “administration”  on  the  one  hand  and 
“budget  making ”on  the  other. 

There  is  considerable  justification  for  the  procedure  followed 
by  Chicago  in  its  standardization  program.  The  departments 
were  without  information  with  respect  to  conditions  of  employ¬ 
ment  and  did  not  have  equipment  with  which  to  develop  it. 
They  were  either  out  of  sympathy  with  or  uninformed  regarding 
the  plans  to  standardize  public  employments  and  to  work  out 
more  efficient  forms  of  organization  and  procedure.  In  other 
words,  the  official  organization  was  in  large  part  incapable  and 
unwilling.  Such  conditions  were  largely  instrumental  in  con¬ 
ferring  such  wide  powers  upon  the  standardization  agency. 
It  was  important  that  information  as  to  existing  irregularities 
in  conditions  of  employment  organization  and  procedure  be 
developed  as  soon  as  possible  and  constructive  proposals  formu¬ 
lated  on  the  basis  thereof.  The  conditions  existing  in  the 

33 


STANDARDIZATION  OF  PUBLIC  EMPLOYMENTS 


departments  did  not  make  for  action  with  respect  to  impor¬ 
tant  phases  of  any  of  these  problems.  This  explains  the  develop¬ 
ment  of  an  independent  agency  outside  the  departments  to 
develop  information  as  to  departmental  conditions  and  interpret 
such  conditions  in  the  form  of  proposals  for  change,  as  a  basis  for 
budgetary  guidance. 

Results  of  Standardization  in  Chicago 

The  savings  which  have  resulted  to  the  city  of  Chicago  through 
the  standardization  of  its  employments  are  difficult  to  measure. 
The  following  is  a  comparative  statement  of  the  average  salaries 
paid  in  the  several  functional  divisions  of  the  service  for  the 
five  year  period  1911-1915  inclusive: 


Class  1911  1912  1913  1914  1915 

Medical . .  $974  $974  $1003  $1025  $1017 

Engineering .  1802  1796  1843  1770  1840 

Clerical .  1216  1223  1222  1208  1184 

Library .  678  888  949  909  906 

Inspection .  1334  1433  1401  1426  1406 

Supervising .  1354  1408  1383  1268  1297 


This  indicates  that  in  certain  important  branches  of  the 
service  there  has  been  a  marked  reduction  in  the  average  salary 
rates,  a  reduction  which  has  been  effected  in  spite  of  the  increases 
in  the  market  value  of  such  employments,  the  increased  cost  of 
living,  etc.,  during  that  period. 

The  most  important  benefit,  however,  is  the  indirect  saving 
which  accrues  through  the  establishment  of  uniform  conditions 
of  employment  which  equalize  opportunities  and  make  the  service 
attractive  to  the  personnel.  This  has  led  to  an  esprit  de  corps 
which  has  been  translated  into  higher  individual  and  group 
efficiency.  The  commission  claims  that  it  is  difficult  to  estimate 
the  extent  of  saving  which  has  accrued  through  the  larger  output 
of  the  individual  employe,  traceable  directly  to  this  influence. 

Experience  of  Pittsburgh  in  Applying  Standards 

In  Pittsburgh,  likewise  a  central  agency  was  created,  a  de  facto 
committee  on  standardization  composed  of  the  finance  depart¬ 
ment  and  the  mayor’s  department,  to  study  conditions  and  make 
specific  proposals  as  to  individual  increases  and  reductions,  as 
well  as  to  present  a  program  which  would  make  for  an  efficient 
and  equitable  administration  of  civil  service.  This  study  fol¬ 
lowed  intensive  studies  into  departmental  organization  and  pro- 

34 


THE  PRACTICAL  SIDE  OF  STANDARDIZATION 


cedure  by  the  Bureau  of  Municipal  Research,  which  was  employed 
by  the  city  council  in  Pittsburgh.  As  a  result  of  this  study  a 
large  body  of  fact  and  expert  opinion  was  developed  with  respect 
to  organization.  It  was  this  background  that  enabled  the  small 
staff  provided  for  standardization  to  complete  its  work  within 
the  allotted  time  and  submit  its  proposals  in  concrete  form. 

The  program  of  investigation  contemplated  the  fullest  co-op¬ 
eration  on  the  part  of  departments.  Furthermore,  an  effort  was 
made  to  induce  certain  departments  to  initiate  proposals.  It 
was  found  that  some  were  unwilling  to  co-operate,  despite  the 
conditions  existing.  In  many  of  the  cases  where  proposals  were 
initiated  by  officials,  it  was  discovered  that  the  information  upon 
which  the  proposals  were  based  was  fragmentary  and  misleading. 

The  standardization  committee,  therefore,  undertook  to  ap¬ 
praise  each  position  of  the  city  government  individually  on 
the  basis  of  the  information  secured  and  to  present  in  concrete 
form  recommendations  as  to  reductions  and  increases.  In  mak¬ 
ing  its  recommendations,  the  committee  realized  that  it  was 
running  contrary  in  many  instances  to  expressed  opinions  of 
heads  of  departments  who  were  responsible  in  large  part  for 
administrative  results.  Many  concessions  were  made  to  the 
departments  by  leaving  positions,  obviously  overpaid,  at  existing 
rates  because  of  peculiar  claims  of  consideration  due  to  long  or 
efficient  service  on  the  part  of  the  incumbents.  But  it  was 
realized  that  unless  arbitrary  action  was  taken,  such  arbitrary 
action  being  based  upon  an  array  of  facts  which  could  not  be 
refuted,  and  unless  recommendations  were  made  to  the  finance 
controlling  body  which  would  lead  to  an  immediate  readjustment 
of  individual  rates,  nothing  of  a  substantial  nature  would  be  done 
to  improve  the  conditions.  In  other  words,  the  official  organiza¬ 
tions  charged  with  administration  were  not  equipped  or  inclined 
to  take  the  necessary  steps  looking  toward  an  improved  condition 
of  the  personnel  unless  certain  conditions  were  imposed  from  with¬ 
out,  except  as  the  way  was  pointed  and  controlled,  on  the  basis 
of  suggestion,  by  an  independent  agency. 

Experience  of  New  York  City  in  Applying  Standards 

The  conditions  in  Chicago  and  Pittsburgh  which  largely 
influenced  the  work  of  the  standardization  agenc>,  were  present 
in  New  York  City  although  in  a  less  marked  degree.  The 
manner  in  which  the  program  was  carried  on  has  been  character¬ 
ized  in  the  preceding  pages  of  this  report.  The  opportunity  to 

35 


STANDARDIZATION  OF  PUBLIC  EMPLOYMENTS 


develop  information  with  respect  to  organization  and  procedure 
as  a  basis  for  the  guidance  of  the  budget-makers  was  recognized 
in  developing  the  standards. 

In  the  preparation  of  the  budget  for  the  year  1916  the  infor¬ 
mation  developed  by  the  bureau  of  standards,  the  standardization 
agency,  was  used  as  the  basis  of  proposals  initiated  by  it,  not  only 
with  respect  to  the  re-adjustment  of  individual  salary  rates,  but 
also  with  respect  to  abolishment  of  positions  and  the  reorganiza¬ 
tion  of  departments  and  bureaus.  The  propriety  of  this  action 
and  the  extent  to  which  such  a  course  of  conduct  should  be  pur¬ 
sued,  if  proper,  are  important  questions. 

The  Bureau  of  Municipal  Research  realizing  the  grave  danger 
in  this  method  of  applying  standardization  principles  and  utilizing 
standardization  materials,  issued  under  date  of  Oct.  6,  1915,  a 
memorandum1  calling  the  attention  of  members  of  the  board  of 
estimate  and  apportionment  to  the  danger  of  such  a  course  of 
conduct. 

The  memorandum  points  out  wherein  the  three  kinds  of 
questions  “each  of  which  has  quite  a  separate  bearing  on  the 
complex  problem  of  management”  were  confused  in  the  methods 
used  and  proposed  to  be  used  by  the  Bureau  of  Standards  in  the 
preparation  of  the  Budget  for  the  year  1916,  viz.: 

“1.  Those  having  to  do  with  standardization  of  salaries  and 
conditions  governing  employment ; 

2.  Those  having  to  do  with  the  determination  of  what  work 

is  to  be  done  and  what  personnel  is  required  in  each  of 
the  several  departments,  as  a  basis  for  budget-making; 

3.  Those  having  to  do  with  the  use  that  is  made  by  adminis¬ 

trative  heads  of  the  personnel  authorized  after  it  has 
been  employed.” 

The  viewpoint  of  the  Bureau  of  Municipal  Research  with  its 
recommendations  is  summarized  in  the  following  excerpts  from 
the  memorandum: 

“  Standardization ,  a  Problem  of  Fair  Dealing 

“Standardization,  properly  conceived,  is  primarily  a  prob¬ 
lem  of  justice  and  fair  dealing.  The  city  is  not  in  business 
for  profit;  it  carries  on  its  great  projects  and  activities  for 
the  mutual  benefit  of  citizens.  The  rates  which  citizens 
can  afford  to  pay  to  those  who  serve  them  are  not  to  be 
fixed  by  the  price  of  any  product — they  should  be  deter- 

1  Memorandum  calling  the  attention  of  members  of  the  Board  of  Estimate 
and  Apportionment  to  the  danger  of  adopting  a  method  of  applying  proposed 
standard  specifications  to  the  “Personal  Service  Schedules”  attached  to  the 
Budget  of  1916,  in  a  manner  to  do  injury  to  civil  servants. 

36 


THE  PRACTICAL  SIDE  OF  STANDARDIZATION 


mined  after  due  consideration  given  to  the  conditions  of 
service  which  are  mutually  advantageous. 

“More  than  any  other  employer  in  the  United  States,  the 
City  of  New  York  is  interested  in  establishing  for  itself  a 
reputation  for  fair  dealing.  It  has  no  advantage  to  gain 
from  any  other  course.  Those  who  are  interested  in  the 
welfare  of  civil  servants  must  also  look  favorably  upon  any 
determination  reached  by  the  City  of  New  York  which  may 
have  for  its  end  and  which  promises  equal  opportunity  and 
equal  pay  for  similar  work.  It  is  of  advantage  to  each 
employe  to  have  before  him  such  definite  specifications 
governing  employment  that  he  may  be  able  to  plan  his 
career.  The  city  and  its  civil  servants  alike  are  interested 
in  open-handed  fair  dealing  and  in  having  standards  estab¬ 
lished  which  will  make  municipal  employment  attractive  to 
men  and  women  alike.  Any  standardization  which  will  lay 
the  foundation  for  an  administrative  procedure  that  will 
give  to  employes  better  opportunity  to  rise,  which  will 
enable  men  and  women  in  the  service  to  make  life  plans 
with  fair  hope  of  success,  and  which  will  put  appointments, 
promotions  and  increases  in  compensation  on  a  basis  of 
merit  is  preferable  to  a  method  which  offers  opportunity 
to  those  only  who  may  establish  their  claim  to  recognition 
through  subservience  and  loyalty  to  an  unofficial  organiza¬ 
tion  controlled  in  the  interest  of  those  who  would  thrive  by 
exchanging  ‘patronage’  for  ‘votes.’ 

“Questions  having  to  do  with  standardization  have  little 
in  common  with  the  determination  of  what  work  is  to  be 
done  by  a  particular  department  or  office,  on  the  one  hand, 
or  with  the  use  which  is  to  be  made  of  the  authorized  per¬ 
sonnel  on  the  other.  Standard  specifications  go  into  the 
abilities,  training  and  experience  of  men  and  their  adapta¬ 
tion  to  the  requirements  of  established  civil  service  positions; 
they  have  nothing  to  do  with  decision  as  to  how  many  men 
who  may  meet  these  requirements  shall  be  employed.  The 
Bureau  of  Standards  has  undertaken  to  do  two  things: 
prepare  specifications  or  a  description  of  personal  qualifica¬ 
tions  required  to  entitle  men  to  hold  positions  when  estab¬ 
lished,  and  recommend  a  schedule  of  standard  rates  of  pay. 

“The  Determination  of  Work  Requirements  a  Problem  of  Budget- 
Making 

“In  making  a  budget  it  is  necessary  to  determine  what 
amount  of  money  shall  be  appropriated  for  the  employment 
of  men.  To  do  this,  consideration  must  be  given  to  (1) 
the  work  to  be  done;  (2)  the  number  of  persons  having 
different  qualifications  required  to  do  the  work  efficiently; 
(3)  the  salary  to  be  paid  to  each.  In  arriving  at  its  con¬ 
clusion  as  to  what  amount  should  be  appropriated,  the 
board  of  estimate  should  assume  that  the  management  will 

37 


STANDARDIZATION  OF  PUBLIC  EMPLOYMENTS 


be  efficient  and  that  the  funds  provided  will  be  economically 
used.  After  the  amount  which  may  be  used  by  each  head  of 
department  for  ‘personal  service’  has  been  fixed,  however, 
the  appropriating  body  has  nothing  further  to  do  except  to 
decide  whether  any  terms  or  conditions  should  be  attached 
to  the  expenditure  to  protect  the  city  against  the  use  of  the 
funds  voted  in  a  manner  not  intended.  To  this  end,  it  has 
been  found  desirable  to  prepare  a  list  of  established  positions 
and  to  limit  the  use  of  funds  appropriated  to  the  employ¬ 
ments  set  forth  in  the  ‘personal  service  schedule.’  The 
preparation  of  a  schedule  of  authorized  positions  to  be  filled, 
however,  is  quite  a  different  matter  from  the  establishment 
cf  standard  specifications  and  rates  of  pay. 

“  Assignment  of  Personnel  to  Work  a  Matter  of  Administration 

“There  is  no  one  who  is  qualified  to  determine  how  persons 
shall  be  assigned  to  work  except  officers  who  are  responsible 
for  the  daily  conduct  and  direction  of  the  work  to  be  done. 
When  a  budget-making  body  puts  itself  into  the  attitude  of 
continuing  to  deprive  its  own  members  as  executives  of  the 
right  to  exercise  discretion  in  this  matter  through  conditions 
attached  to  appropriations,  it  uses  its  power  in  a  manner 
which  ultimately  must  defeat  good  administration  and  makes 
it  impossible  to  conduct  the  affairs  of  the  city  in  the  most 
efficient  and  economical  manner.  This  has  been  done  in 
the  past  as  a  first  step  when  the  means  for  the  exercise  of 
central  executive  control  was  lacking. 

“  Confusion  and  Injustice  the  Result  of  Wrong  Method 

“This  brings  us  to  the  point.  There  are  two  opposing 
forces  now  operating  in  the  Board  of  Estimate  and  Appor¬ 
tionment,  each  of  which  seeks  to  influence  the  appropriation 
for  1916.  One  is  primarily  interested  in  reducing  the  ex¬ 
penses  of  the  city;  the  other  is  primarily  interested  in  estab¬ 
lishing  standard  specifications  for  employment  and  rates  of 
pay  which  in  turn  have  for  their  purpose  the  holding  out  of 
greater  opportunity  and  greater  security  to  employes. 
Reduction  in  total  expenditures  may  or  may  not  be  desirable. 
But  whether  it  is  or  is  not,  confusing  the  two  issues  will  be 
helpful  to  neither.  Any  new  plan  of  standardization  when 
applied  to  those  who  hold  positions  under  an  old  plan  may 
have  a  detrimental  effect  unless  great  care  is  used  in  making 
adjustments.  Let  us  take  an  example  which  will  illustrate 
the  application  of  the  method  which  is  now  being  used. 
We  will  assume  that  two  bookkeepers  are  employed  by  the 
city  who  have  the  same  training  and  experience  and  have 
demonstrated  the  same  ability  and  enthusiasm  in  their 
work.  One  may  have  been  assigned  to  an  office  where  there 
is  small  need  for  bookkeeping  and  required  to  act  largely 
as  a  filing  clerk;  the  other  may  be  placed  in  an  office  where  he 

38 


THE  PRACTICAL  SIDE  OF  STANDARDIZATION 


has  a  chance  to  do  his  best  and  to  develop  further  his  abili¬ 
ties  through  bookkeeping  experience. 

“The  staff  of  the  board  of  estimate  and  apportionment 
now  undertakes  to  prepare  schedules  for  a  budget.  Not 
having  full  information  about  the  work  which  is  being  done 
and  as  a  basis  for  determining  what  personnel  should  be 
provided  for  carrying  on  the  functions  of  each  of  the  depart¬ 
ments,  it  undertakes  to  get  at  this  through  its  study  of 
individual  employments.  In  making  a  study  of  the  work 
of  these  two  bookkeepers  the  board’s  staff  may  have  arrived 
at  the  conclusion  that  the  services  performed  by  the  first 
man  are  those  which  may  be  done  by  a  $720  clerk,  whereas 
those  performed  by  the  second  man  could  only  be  done  by 
a  senior  bookkeeper  who  would  not  be  overpaid  at  $1,800 
a  year.  This  may  be  the  best  method  that  is  now  available 
for  determining  what  is  a  fair  allowance  to  be  made  for 
personal  services  required  by  the  whole  department.  But 
the  staff  would  make  further  use  of  it  and  apply  the  same 
logic  to  determine  what  salaries  each  of  the  two  individuals 
in  question  should  receive.  It  is  the  latter  use  of  the  facts 
that  works  a  very  grave  injustice  and  threatens  to  upset 
standardization  and  conclusions  as  to  budget  requirements 
as  well  as  the  living  plans  of  persons  who  have  rendered 
faithful  and  intelligent  service  to  the  city. 

“  The  vital  question  now  is  whether  a  staff  of  the  board  of 
estimate  and  apportionment  should  be  permitted  to  say 
that  the  first  man,  who  has  already  been  handicapped  by 
having  an  unfortunate  assignment,  shall  have  a  still  further 
injustice  done  him  by  requiring  that  his  salary  shall  be 
reduced,  whereas  if  the  two  men  in  question  had  had  their 
assignments  reversed  the  recommendation  for  salary  in¬ 
crease  and  decrease  would  have  applied  in  an  obverse  way. 
Such  a  method  of  determining  what  amount  should  be  appro¬ 
priated,  in  the  assumed  interest  of  economy,  bids  fair  to 
defeat  its  own  ends.  And  it  is  fairly  contended  that  if  this 
is  the  use  to  be  made  of  standardization — if  the  board  is 
to  invoke  a  principle  of  general  good  for  doing  personal  injus¬ 
tice — the  whole  thing  should  be  defeated  until  a  method  may 
be  developed  which  will  reconcile  them. 

“  Suggestions  for  1916  Budget 

“The  suggestion  is  made  that  instead  of  considering  these 
three  problems  as  one,  [viz.:  (1)  the  adoption  of  standard 
specifications,  (2)  the  fixing  of  the  number  of  positions  and 
salaries  in  each  department,  and  (3)  the  determination  of 
how  men  shall  be  assigned  to  work]  and  instead  of  assuming 
that  all  of  them  are  to  be  considered  and  determined  by 
the  board  at  the  time  that  it  fixes  its  budget — each  be 
separately  considered;  and  that  appropriations  be  made  in 
such  manner  that  they  can  be  acted  on  independently.  To 
the  end  that  proper  consideration  may  be  given  to  the  just 

39 


STANDARDIZATION  OF  PUBLIC  EMPLOYMENTS 


claims  of  those  now  on  the  payroll,  as  well  as  to  the  estab¬ 
lishment  of  conditions  and  rates  of  pay  that  will  be  more 
equitable  and  just  for  the  future,  some  such  rules  as  the  fol¬ 
lowing  should  be  adopted  to  govern  the  preparation  of  the 
1916  budget  and  ‘schedules  of  personal  service’ : 

1 —  That  all  appropriations  for  “personal  service,”  as  well 

as  for  each  other  kind  of  thing  to  be  purchased,  be  set 
up  in  one  amount  for  each  department,  as  shown  by 
Exhibit  “A”  attached. 

2 —  That  instead  of  seeking  to  control  the  amount  of  the 

appropriation  for  “personal  services”  which  may  be 
used  for  each  function  or  kind  of  work  done,  as  in  the 
past,  through  designating  the  number  of  employes, 
and  positions  and  salaries  which  may  be  paid  in  each 
bureau  or  office,  the  board  of  estimate  and  appor¬ 
tionment  set  up,  by  schedule,  the  amount  or  total 
cost  of  “personal  services”  which  may  be  used  for 
each  kind  of  work,  leaving  to  the  head  of  the  depart¬ 
ment  the  right  to  determine  what  persons  will  be 
assigned  or  used  in  the  performance  of  such  work 
(See  Exhibit  “B”  attached). 

3 —  That  as  soon  as  practicable,  and  before  January  1st 

next,  the  board  of  estimate  and  apportionment  act 
on  the  reports  before  its  committee  on  salaries  and 
grades  and  establish  standard  specifications  and  rates 
of  pay  without  regard  to  the  number  of  positions 
provided  for  in  the  budget,  and  as  soon  as  each  report 
has  been  acted  upon,  that  the  specifications  thereby 
established  be  made  applicable  to  all  subsequent 
changes  in  salaries  and  grades. 

4 —  That  until  standard  specifications  and  rates  of  pay  have 

been  established  no  changes  be  made  except  after 
approval  by  the  board  of  estimate  and  apportionment. 

5 —  That  the  head  of  each  department  be  required  by  reso¬ 

lution  to  recommend  changes  in  organization,  and 
before  January  1st  to  submit  for  the  action  of  the 
board  of  estimate  and  apportionment  and  board  of 
aldermen  a  schedule  of  positions  which  he  wishes  te 
have  established  in  his  department,  any  changes 
proposed,  so  far  as  practicable,  to  be  in  accordance 
with  the  new  standards,  the  total  amount  or  annual 
basis  of  the  employments  so  listed  not  to  exceed  the 
total  amount  appropriated  for  the  department. 

6 —  That  upon  receipt  of  requests  from  department  heads, 

or  if  not  received  before  January  1,  upon  their  own 
motion,  the  board  of  estimate  and  apportionment 
shall  establish  revised  schedules  of  positions  in  the 
several  departments;  such  schedules  when  established 
to  govern  expenditures  from  the  1916  appropriations 
for  ‘personal  services.’” 

40 


CHAPTER  VII 


INFLUENCE  OF  THE  STANDARDIZATION  MOVEMENT 
—PRESENT  ATTITUDE  OF  THE  COUNTRY 

TOWARD  IT 


The  second  part  of  this  work  presents  in  detail  a  description 
and  discussion  of  the  work  of  the  several  political  subdivisions — 
state  and  municipal — which  have  provided  special  agencies  to 
standardize  their  employments.  These  particular  communities 
expend  annually  a  grand  total  of  $200,000,000  for  personal  serv¬ 
ice.  The  country  at  large  expends  in  the  neighborhood  of 
ten  times  that  much  for  similar  purposes.  It  is  evident  that 
every  community  has  reason  to  be  interested  and  it  is  believed 
that  through  the  isolated  attempts  which  have  been  made  to 
establish  better  control  of  the  personnel  there  has  been  devel¬ 
oped  a  leadership  and  influence  which  will  bring  about  a  general 
and  permanent  reform  in  civil  service. 

As  a  part  of  its  investigation,  the  New  York  senate  committee 
on  civil  service  submitted  to  civil  service  commissions  and  other 
public  agencies  throughout  the  country,  a  questionnaire 
dealing  with  civil  service  regulation,  practice  and  experience, 
for  the  purpose  of  gathering  material  for  a  comparative  study. 
This  method  of  inquiry  was  supplemented  by  field  studies. 

It  may  be  said,  as  a  result  of  this  investigation,  that  the 
organizations — federal,  state,  municipal — throughout  the  coun¬ 
try  recognize  that  one  of  the  most  important  reforms  in  govern¬ 
ment  is  that  comprehended  within  the  standardization  move¬ 
ment — constructive  reorganization  of  employment  control  which 
will  substitute  positive  standards  and  requirements  of  work  for 
the  present  negative  system  of  restrictive  regulation. 

Representative  private  practice  in  local,  and  other  communi¬ 
ties,  was  studied  and  interpreted  through  correspondence  and 
field  investigation  in  order  to  learn  the  methods  of  employ¬ 
ment  control  which  have  been  successfully  applied  by  private 
employers.  Through  such  inquiries  and  conferences  the  senate 
committee  on  civil  service  has  been  able  to  focus  upon  the  stan- 

41 


STANDARDIZATION  OF  PUBLIC  EMPLOYMENTS 


dardization  movement  the  attention  of  private  employers  who 
spend  hundreds  of  millions  annually  for  salaries  or  wages  and  exer¬ 
cise  control  over  several  hundred  thousands  of  employes.  From 
these  unofficial  or  private  sources  have  come  strong  endorsements 
of  the  standardization  program.  Of  more  significance,  however, 
has  been  the  general  expression  of  opinion  that  it  is  only  through 
an  overhauling  of  the  public  service,  such  as  is  contemplated 
by  this  movement,  that  government  can  be  made  efficient. 

The  movement  for  standardization  of  public  employments 
has  not  as  yet  expressed  itself  in  a  general  way.  Real  achieve¬ 
ments  have  been  made  in  many  jurisdictions,  the  influence  of 
which  is  beginning  to  be  felt  by  every  municipal  government, 
the  activities  of  which  are  broad  and  varied  enough  to  make  the 
employment  problem  an  important  one.  A  keen  appreciation  of 
the  idealism  as  well  as  the  practical  side  of  the  movement  and 
its  intimate  relation  to  the  efficiency  of  governmental  agencies 
has  been  expressed  by  all  the  public  and  private  agencies  that  have 
been  consulted. 

The  work  of  the  Chicago  civil  service  commission  seems  to 
have  left  its  impress  more  widely  than  any  other  single  agency 
in  the  country.  This  is  due  in  part  to  the  fact  that  Chicago  was 
the  pioneer  in  standardization,  and  partly  to  the  fact  of  its  loca¬ 
tion  which  has  permitted  the  Chicago  civil  service  commission 
easily  to  effect  contact  with  cities  both  in  the  East  and  the  West, 
which  have  looked  to  it  for  direction.  It  may  be  said,  however, 
that  the  classification  and  procedure  to  govern  employment 
which  have  been  formulated  by  New  York  City  and  Pittsburgh 
are  more  scientific  in  their  nature  than  the  methods  adopted  by 
Chicago. 

Within  six  months  the  results  of  the  labors  of  the  senate  com¬ 
mittee  on  civil  service  of  the  State  of  New  York  will  be  presented 
to  the  legislature  and  the  public.  It  is  thought  that  this  inves¬ 
tigation  represents  the  most  comprehensive  study  ever  under¬ 
taken  by  a  state  into  the  conditions  of  governing  the  personnel 
and  related  problems  of  organization.  The  constructive  results 
of  the  New  York  City,  Pittsburgh  and  New  York  State  surveys 
should,  if  interpreted  to  the  country  at  large,  have  a  revolutionary 
effect  upon  government. 

Benefits  Secured  by  Standardization 

Perhaps  no  better  expression  of  the  growing  influence  of  the 
standardization  idea  can  be  given  in  concluding  this  general 

42 


THE  PRACTICAL  SIDE  OF  STANDARDIZATION 


review  of  the  subject  than  is  set  forth  by  the  committee  on  civil 
service  of  the  senate  of  the  State  of  New  York  in  a  statement 
recently  issued  outlining  its  program. 

In  this  declaration,  the  committee  presents  three  sets  of 
benefits,  one  to  the  state,  one  to  the  employes  and  one  to  the 
taxpayers,  as  follows: 

The  Senate  Committee  on  Civil  Service  believes  the  adop¬ 
tion  of  the  program  outlined  in  this  statement  will  secure 
for  the  State  three  great  benefits.  It  will  result  in  increased 
efficiency  from  employes.  It  will  bring  into  State  service 
the  highest  grade  of  men  and  women  because  of  the  oppor¬ 
tunity  for  a  permanent  career.  It  will  reduce  the  cost  of 
State  government  through  the  elimination  of  inequitable 
salary  increases  and  bar  the  introduction  of  unnecessary 
positions. 

The  Committee  also  believes  that  it  will  secure  for  the 
State  employe  three  great  benefits.  The  underpaid  em¬ 
ploye  will  be  advanced  to  adequate  rates  of  compensation. 
Favoritism  and  personal  preference  will  be  eliminated. 
Promotion  and  advancement  will  be  based  upon  merit,  thus 
securing  to  each  employe  recognition  of  efficient  and  loyal 
service. 

And,  thirdly,  the  Committee  believes  that  the  adoption  of 
this  program  will  secure  for  the  taxpayer  three  great  benefits. 
It  will  result  in  efficient  and  businesslike  government.  It 
will  establish  real  opportunity  in  State  service.  It  will 
lower  taxes,  in  the  assurance  that  salaries  are  paid  only  to 
the  efficient  and  are  commensurate  with  the  duties  per¬ 
formed. 


43 


APPENDIX  TO  PART  I 


INTRODUCTORY  NOTE 

As  outlined  in  Part  I,  the  code  of  specifications  furnishes  the  basic  standards, 
to  be  adopted  by  the  legislative  or  finance  controlling  body,  for  controlling 
the  public  service.  By  regulating  the  procedure  of  the  civil  service  commission 
they  represent  the  instrument  of  control  over  the  chief  executive,  in  recruiting 
employees  and  providing  rules  and  regulations  with  respect  to  the  following : 

Titles. 

Work  Requirements. 

Grades  and  Rates  of  Compensation. 

Minimum  Qualifications  for  Appointment. 

Minimum  Qualifications  for  Promotion  from  grade  to  grade. 

As  pointed  out,  the  standards  represent  the  minimum  requirements  imposed 
by  the  legislative  or  finance  controlling  body  upon  the  executive  to  insure 
uniform  enforcement  and  administration  of  civil  service  principles.  The 
application  of  these  standards  is  a  duty  imposed  upon  the  executive,  who  under 
the  law  of  most  state  and  city  governments  appoints  an  independent  agency 
known  as  the  civil  service  commission  for  this  purpose. 

The  civil  service  commission  or  other  agency  representing  the  executive  is 
charged  with  the  enforcement  of  the  basic  standards  subject  to  the  limitations 
contained  therein. 

The  separation  of  the  basic  standards  from  the  rules  of  practice  and  proce¬ 
dure  applying  them — making  the  former  mandatory  through  legislative  action 
and  the  latter  discretionary  upon  the  body  charged  with  their  enforcement — 
makes  for  greater  flexibility  and  elasticity  in  the  administration  of  the  civil 
service  law,  and  at  the  same  time  guards  effectively  against  inequalities  and 
abuses.  It  imposes  upon  the  executive  certain  limitations  and  restrictions  to 
insure  uniformity  of  practice,  and,  at  the  same  time,  eliminates  many  unneces¬ 
sary  and  arbitrary  regulations  leaving  the  executive  free  to  work  out  a  busi¬ 
nesslike  and  economical  procedure. 

The  following  exhibits  represent  in  broad  outline  the  basic  features  of  the 
proposed  specifications  governing  “personal  service.” 

Exhibits  I  and  II  represent  the  classification  of  services  and  groups  including 
titles,  grades,  salary  limits  and  rates. 

Exhibits  III  and  IV  represent  outlines  of  the  content  of  specifications  which 
are  prepared  for  each  group. 

Definition  of  Terms  Used  in  the  Outlines . 

“ Service.”  The  term  “Service"  is  used  to  designate  the  broadest  functional 
division  of  similar  or  related  employments,  determined  irrespective  of  depart¬ 
mental  or  office  lines.  Examples : 

Administrative . 

Clerical. 

Professional  and  Scientific,  etc. 

“Group."  The  term  “Group"  is  used  to  designate  a  subdivision  of  a  service 
covering  a  general  line  of  work,  and  including  those  employments  the  duties 
of  which  are  of  the  same  nature.  Examples: 

Clerk. 

Engineer. 

Lawyer. 

Physician. 


44 


APPENDIX  TO  PART  I 


“Grade”  The  term  “Grade”  is  used  to  designate  a  subdivision  of  a  “Group” 
including  the  specific  work  or  duties  of  individual  officers  or  employees.  Each 
“Grade”  has  assigned  an  appropriate  range  of  salary,  the  differentiation  of 
grades  being  based  upon  the  skill,  importance,  responsibility  or  value  of  the 
work. 

General  Regulation  Governing  Promotion  and  Advancement. 

Advancement  from  rate  to  rate  within  each  grade  is  made  regularly  upon 
completion  of  a  term  of  at  least  one  year  of  satisfactory  service.  Proof  of 
satisfactory  service  is  established  by  the  efficiency  records  of  the  civil  service 
commission,  supplemented  by  further  investigation,  under  the  rules  of  the 
commission. 

Promotion  from  grade  to  grade  representing  a  change  of  duties  is  based  upon 
examination  requirements  which,  as  far  as  practicable  are  competitive  in  char¬ 
acter. 

Each  salary  grade,  representing  a  range  of  compensation  for  a  prescribed 
standard  of  work,  includes  a  series  of  salary  rates  which  afford  opportunity 
for  advancement  without  change  of  duties  and  without  examination.  Thus, 
for  example,  the  first  grade  of  the  clerk  group  of  the  clerical  service  includes 
the  following  rates: 

$360. 

420. 

480. 

The  lowest  rate  represents  the  salary  of  an  incumbent  of  a  position  within 
this  grade  at  the  time  of  his  appointment  and  during  the  first  year  of  his  in¬ 
cumbency.  The  succeeding  rates  represent  the  extent  to  which  he  may  ad¬ 
vance  without  examination  after  his  first  and  second  years  of  service  within 
this  grade.  The  general  regulations  governing  the  amount  of  increases  are 
intended  to  furnish  an  annual  increment  approximating  ten  per  cent  of  the 
initial  rate  for  each  grade  for  salaries  below  $3600  per  year.  These  regulations 
are  embodied  in  the  following  table: 

Salaries  up  to  $1200 . Advances  of  $60.00  annually 

Salaries  from  $1200  to  $1800 .  “  “  120.00  “ 

Salaries  from  $1800  to  $2400 .  “  “  180.00  “ 

Salaries  from  $2400  to  $3600 .  “  “240.00  “ 

A  few  exceptions  to  this  general  rule  have  been  recognized  to  meet  peculiar 
conditions  in  certain  groups.  In  each  case  the  special  regulations  governing 
the  rates  of  compensation  are  specifically  noted. 


4 


45 


Exhibit  1 — A  STATE  CLASSIFICATION — Tentative  Clas¬ 
sification  of  Services  and  Groups  Including  Titles 
and  Salary  Kates,  New  York  State.  (Dec.,  1915.) 

Exhibit  2— A  CITY  CLASSIFICATION— Proposed  Clas¬ 
sification  of  Services  and  Groups  Including  Titles 
and  Salary  Kates,  New  York  City.  (Dec.,  1915.) 

Exhibit  3— STATE  SPECIFICATIONS— Types  of  Specifi¬ 
cations,  New  York  State. 

Exhibit  4— CITY  SPECIFICATIONS— Types  of  Specifica¬ 
tions,  New  York  City;  4- A — Chicago. 


EXHIBIT  1 


A  STATE  CLASSIFICATION 

Tentative  Classification  of  Services  and  Groups,  In¬ 
cluding  Titles  and  Salary  Rates — New  York  State. 


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A  State  Classification.  Exhibit  1 — Continued 


STANDARDIZATION  OF  PUBLIC  EMPLOYMENTS 


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A  State  Classification.  Exhibit  1 — Continued 


EXHIBIT  l—A  STATE  CLASSIFICATION 


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A  State  Classification.  Exhibit  1 — Continued 


STANDARDIZATION  OF  PUBLIC  EMPLOYMENTS 


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EXHIBIT  1 — A  STATE  CLASSIFICATION 


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Classification.  Exhibit  1 — Continued 


EXHIBIT  l—A  STATE  CLASSIFICATION 


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A  State  Classification.  Exhibit  1 — Continued 


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A  State  Classification.  Exhibit  1 — Continued 


EXHIBIT  1 — A  STATE  CLASSIFICATION 


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A  State  Classification.  Exhibit  1 — Concluded 


STANDARDIZATION  OF  PUBLIC  EMPLOYMENTS 


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EXHIBIT  2 


A  CITY  CLASSIFICATION 

Proposed  Classification  of  Services  and  Groups  Includ¬ 
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A  City  Classification.  Exhibit  2 — Continued 


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*  Recruit  Motor  Driver,  (Dept.  St.  Cleaning)  is  an  office  title  for  employes  under  assignment  from  positions  in  Grade  I  of  the  Street 
Cleaner,  Refuse  Collector  or  Refuse  Disposer  Groups  of  the  Street  Cleaning  Service. 


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ject  of  individual  appraisal. 

The  letters  R  N  refer  to  registered  nurse. 

The  abbreviation  “Maint.”  refers  to  maintenance,  indicating  that  maintenance  is  allowed  in  addition  to  the  rates  given. 


EXHIBIT  3 


STATE  SPECIFICATIONS 

Types  of  Representative  Specifications  Used  in  the  Stand¬ 
ardization  of  Public  Employments 

Proposed  for  New  York  State 


CLERK  GROUP 


DEFINITION  OF  CLERK  GROUP 

The  term  “Clerk  Group”  is  used  to  identify  those  employments  of  the 
Clerical  Service,  the  duties  of  which  require  the  performance  of  routine  or 
specialized  office  work  not  included  in  other  groups  of  the  Clerical  Service. 

GRADE  I 

TITLE  OF  POSITIONS — 

PAGE 


DUTIES — 

Definition: 

The  duties  of  these  positions  are  to  perform,  under  supervision,  the 
simplest  kinds  of  office  work. 


Examples: 

Addressing  and  mailing  letters. 

Keeping  office  in  order. 

Running  errands. 

Receiving  visitors. 

Distributing  and  collecting  mail. 

Letter  press  copying. 

QUALIFICATIONS — 

Persons  holding  these  positions  shall  have: 

1.  Such  qualifications  as  may  be  required  by  the  State  Civil  Service 
Commission. 


COMPENSATION — 

The  range  of  annual  compensation  of  this  grade,  with  standard  salary 
rates,  is  as  follows: 

$360. 

420. 

480. 


99 


STANDARDIZATION  OF  PUBLIC  EMPLOYMENTS 


GRADE  II 

TITLE  OF  POSITIONS - 

JUNIOR  CLERK 


DUTIES — 

Definition: 

The  duties  of  these  positions  are  to  perform,  under  supervision,  rou¬ 
tine  clerical  work  of  minor  consequence  but  exacting  some  skill  and  exper¬ 
ience. 


Examples: 

Verifying  extensions,  additions,  etc. 

Preparing  simple  tabulations. 

Assisting  in  filing. 

Assisting  in  operating  mechanical  office  devices. 

Messenger  duties  in  relation  to  transfer  of  papers,  documents,  etc. 


QUALIFICATIONS — 

1 .  As  a  basis  for  appointment  for  promotion: 

(a)  Not  less  than  one  year  of  service  in  Grade  I. 

(b)  Such  additional  qualifications  as  may  be  required  by  the  State 
Civil  Service  Commission. 

2.  As  a  basis  for  original  entrance: 

(a)  Such  qualifications  as  may  be  required  by  the  State  Civil  Service 
Commission. 


COMPENSATION — • 

The  range  of  annual  compensation  of  this  grade,  with  standard  salary 
rates,  is  as  follows: 

$540. 

600. 

660. 

720. 


100 


EXHIBIT  3— STATE  SPECIFICATIONS 


GRADE  III 

TITLE  OP  POSITIONS — 

CLERK 


DUTIES — 

Definition: 

The  duties  of  these  positions,  which  may  call  for  limited  supervision, 
are  to  perform  clerical  duties  requiring  familiarity  with  general  depart¬ 
mental  practice  or  knowledge  of  and  training  in  prescribed  office  proce¬ 
dures  relating  thereto. 

Examples : 

Filing  and  custody  of  correspondence  and  other  documents. 

Answering  routine  correspondence  on  the  basis  of  prescribed  payrolls. 

Preparing  payrolls. 

Keeping  time  records. 

Operating  intricate  mechanical  office  devices,  such  as  tabulating 
machines. 

Elementary  statistical  work. 

QUALIFICATIONS — 

1.  As  a  basis  for  appointment  for  promotion: 

(a)  The  minimum  qualifications  for  Grade  II. 

(b)  Not  less  than  one  year  of  service  in  Grade  II. 

2.  As  a  basis  for  original  entrance: 

(a)  Not  less  than  one  year  of  experience  in  work  of  Grade  II  character. 

3.  Such  additional  qualifications  as  may  be  required  by  the  State 
Civil  Service  Commission. 

Provided,  however,  appointment  to  vacancies  of  new  positions  within 
this  grade  shall  be  filled  from  original  entrance  eligibility  lists,  except  where 
the  departmental  executive  shall  certify.  This  certification  must  be 
approved  by  the  State  Civil  Service  Commission  that  it  is  not  practicable 
to  fill  such  position  from  an  eligibility  list. 

COMPENSATION — 

The  range  of  annual  compensation  of  this  grade,  with  standard  salary 
rates,  is  as  follows : 

$840. 

900. 

960. 

1080. 

1200. 

Special  Regulation  Governing  Maximum  Rates: 

The  fourth  salary  rate,  $1080.,  is  designated  as  the  maximum  rate  for  the 
Third  Grade  of  the  Clerk  Group.  Where  positions  within  this  grade 
involve  supervisory  or  other  independent  responsibility,  the  fifth  rate, 
$1200.,  may  be  designated  as  the  maximum  therefor  after  individual 
appraisal. 


101 


STANDARDIZATION  OF  PUBLIC  EMPLOYMENTS 


GRADE  IV 

TITLE  OF  POSITIONS — 

SENIOR  CLERK. 


DUTIES — 

Definition: 

The  duties  of  these  positions  are  to  perform  highly  specialized  clerical 
work  calling  for  the  exercise  of  independent  judgment  and  continuing 
responsibility,  or  to  supervise  and  be  accountable  for  the  clerical  work  of 
a  large  bureau  or  small  department. 


Examples: 

Answering  important  correspondence. 

Installing,  revising,  and  taking  charge  of  complicated  departmental 
filing  system. 

Passing  upon  vouchers  for  official  signature. 

QUALIFICATIONS — 

Persons  holding  these  positions  shall  have : 

1.  The  minimum  qualifications  prescribed  for  Grade  III. 

2.  Not  less  than  one  year  of  experience  in  Grade  III,  or  similar  experi¬ 
ence  in  work  of  an  equivalent  character. 

3.  Such  additional  qualifications  as  may  be  required  by  the  State  Civil 
Service  Commission. 

COMPENSATION — 

The  range  of  annual  compensation  of  this  grade,  with  standard  salary 
rates,  is  as  follows : 

$1320. 

1440. 

1560. 

1680. 

1800. 

Special  Regulation  Governing  Entrance  and  Advancement: 

The  entrance  or  advancement  salary  rates  within  this  grade  are  con¬ 
ditional  upon  appraisal,  under  the  rules  of  the  Civil  Service  Commission, 
indicating  that  the  rate  requested  does  not  exceed  the  value  of  the  work 
to  be  performed. 


102 


EXHIBI T  S—S  T  A  TE  SPECIFICA  TION 


GRADE  V 

TITLE  OF  POSITIONS — 

CHIEF  CLERK 


DUTIES - 

Definitions: 

The  duties  of  these  positions  are  to  assume  complete  responsibility 
for  the  clerical  work  of  a  large  department,  involving  the  highest  degree 
of  clerical  knowledge  and  experience,  and  requiring  administrative  ability 
of  a  high  order  in  the  direction  of  clerical  procedures. 

Examples: 

Chief  Clerk,  State  Board  of  Charities. 


QUALIFICATIONS — 

Persons  holding  these  positions  shall  have : 

1.  The  minimum  qualifications  prescribed  for  Grade  IV. 

2.  Not  less  than  two  years  of  experience  in  Grade  IV,  or  similar  ex¬ 
perience  in  work  of  an  equivalent  character. 

3.  Such  additional  qualifications  as  may  be  required  by  the  State 
Civil  Service  Commission. 

COMPENSATION — 

The  range  of  annual  compensation  of  this  grade,  with  standard  salary 
rates,  is  as  follows: 

$1980. 

2160. 

2340. 

2580. 

2820. 

Special  Regulation  Governing  Entrance  and  Advancement: 

The  entrance  or  advancement  salary  rates  within  this  grade  are  con¬ 
ditional  upon  appraisal,  under  the  rules  of  the  Civil  Service  Commission 
indicating  that  the  rate  requested  does  not  exceed  the  value  of  the  work 
to  be  performed. 


103 


STANDARDIZATION  OF  PUBLIC  EMPLOYMENTS 


Proposed,  for  New  York  State 


ENGINEER  GROUP  (D  io) 

Professional  and  Scientific  Service 
Engineer  Group 

Definition: 

The  term  Engineer  Group  is  used  to  identify  those  authorized  employ¬ 
ments  of  the  Professional  and  Scientific  Service,  the  incumbents  of  which 
are  required  to  perform  duties  which  involve  training  or  experience  in 
civil,  mechanical,  electrical,  sanitary,  chemical  or  other  specialized  en¬ 
gineering  branches. 


GRADE  I  (D  io  I) 

TITLE  OF  POSITIONS — 

ENGINEERING  ASSISTANT 


DUTIES - 

Definition: 

The  duties  of  incumbents  of  these  positions  are  to  perform,  under  in¬ 
struction  and  supervision,  elementary  or  apprentice  work  in  field  or  office 
in  one  or  more  of  the  specialized  engineering  branches. 

Examples: 

Holding  a  rod. 

Making  measurements  with  a  steel  tape. 

Tracing  simple  designs. 

Tabulating  estimates. 

Inspecting  minor  details  of  engineering  work. 

QUALIFICATIONS — 

Persons  holding  these  positions  shall  have : 

1.  Such  qualifications  as  may  be  required  by  the  State  Civil  Service 
Commission. 

COMPENSATION — 

The  range  of  annual  compensation  of  this  Grade  for  full  time  service 
is  from  $720  to  $1080,  inclusive,  with  standard  salary  rates  as  follows: 
$720,  $780,  $840,  $900,  $960,  $1020,  $1080. 

SPECIAL  REGULATION  GOVERNING  THE  INITIAL  RATE — 

Such  training  in  civil,  mechanical,  electrical,  sanitary  or  other  engineer¬ 
ing  branches  as  is  evidenced  by  a  degree  granted  on  the  completion  of  a 
standard  course  of  instruction  in  an  engineering  school  of  recognized 
standing  will  be  accepted  as  the  equivalent  of  the  first  three  years  of  serv¬ 
ice  in  this  Grade. 

Three  years  of  practical  experience  in  engineering  apprentice  work  in 
addition  to  the  minimum  requirements  of  the  State  Civil  Service  Com¬ 
mission  for  appointment  at  the  initial  rate  will  be  accepted  as  the  equiv¬ 
alent  of  three  years  of  service  within  this  Grade. 

Where  allowance  is  made  for  technical  training  or  practical  experience 
under  this  special  regulation,  the  State  Civil  Service  Commission  will 
add  such  tests  to  the  competitive  examination  for  this  Grade  as  are 
necessary  to  determine  the  compliance  with  the  prescribed  training  or 
experience  standards. 

SPECIAL  REGULATION  GOVERNING  TEMPORARY  EMPLOYMENT - 

Standard  salary  rates  for  temporary  service  in  this  Grade  shall  be 
designated  under  the  rules  of  the  State  Civil  Service  Commission  on  the 
basis  of  existing  conditions  provided  that  the  third  rate,  $900,  shall  be  the 
maximum  for  any  such  employment. 

104 


EXHIBIT  3— STATE  SPECIFICATIONS 


GRADE  II  (D  io  II) 


TITLES  OF  POSITIONS - 

JUNIOR  ASSISTANT  ENGINEER 
JUNIOR  ASSISTANT  CIVIL  ENGINEER 
JUNIOR  ASSISTANT  ELECTRICAL  ENGINEER 
JUNIOR  ASSISTANT  MECHANICAL  ENGINEER 
JUNIOR  ASSISTANT  SANITARY  ENGINEER 


DUTIES — 

Definition: 

The  duties  of  incumbents  of  these  positions  are  to  assume  responsibility 
for  the  execution  of  definite  instructions  in  a  minor  section  or  division 
of  an  engineering  project  in  the  field  or  office. 

Examples: 

Running  a  transit  or  level. 

Preparing  or  examining  plans  and  designs,  under  supervision,  for  con¬ 
crete  construction,  bridges,  mechanical  and  electrical  appliances. 

Inspecting  engineering  work  and  materials. 

Preparing  general  working  drawings  for  engineering  projects. 

Making  computations  and  compiling  data  for  reports  and  cost  records. 

Directing  the  operation  of  electrically  driven  machinery. 

QUALIFICATIONS — 

Persons  holding  these  positions  shall  have: 

1.  As  a  basis  for  promotion: 

(a)  The  minimum  qualifications  prescribed  for  Grade  I. 

(b)  Not  less  than  four  years  of  service  in  Grade  I;  or 

(c)  Such  training  in  civil,  mechanical,  electrical,  sanitary  or  other 
engineering  branches  as  is  evidenced  by  a  degree  granted  on  the  com¬ 
pletion  of  a  standard  course  of  instruction  in  an  engineering  school  of 
recognized  standing,  and  in  addition  not  less  than  two  years  of  service  in 
Grade  I. 

(d)  Such  additional  qualifications  as  may  be  required  by  the  State 
Civil  Service  Commission. 

2.  As  a  basis  for  original  appointment: 

(a)  Not  less  than  four  years  of  experience  in  the  particular  branch  of 
engineering  work  covered  in  the  position  to  be  filled. 

(b)  Such  additional  qualifications  as  may  be  required  by  the  State 
Civil  Service  Commission. 

COMPENSATION — 

The  range  of  annual  compensation  of  this  Grade  for  full  time  service 
is  from  $1200  to  $1680,  inclusive,  with  standard  salary  rates  as  follows: 
$1200,  $1320,  $1440,  $1560,  $1680. 

SPECIAL  REGULATION  GOVERNING  TEMPORARY  EMPLOYMENT - 

Standard  salary  rates  for  temporary  service  in  this  Grade  shall  be 
designated  under  the  rules  of  the  State  Civil  Service  Commission  on  the 
basis  of  existing  conditions  provided  that  the  third  rate,  $1440,  shall  be 
the  maximum  for  any  such  employment. 


105 


STANDARDIZATION  OF  PUBLIC  EMPLOYMENTS 


GRADE  III  (D  io  III) 


TITLES  OF  POSITIONS — 

ASSISTANT  ENGINEER 
ASSISTANT  CIVIL  ENGINEER 
ASSISTANT  ELECTRICAL  ENGINEER 
ASSISTANT  MECHANICAL  ENGINEER 
ASSISTANT  SANITARY  ENGINEER 


DUTIES — 

Definition: 

The  duties  of  incumbents  of  these  positions  are  to  assume  responsibility 
for  the  making  of  surveys  or  the  preparation  of  plans,  designs,  specifica¬ 
tions  and  contracts  for  a  minor  section  of  a  large  engineering  project 
or  the  major  section  of  a  small  engineering  project;  to  supervise  or  in¬ 
spect  construction  work  of  such  project;  to  operate  a  completed  section 
of  such  project;  and  to  make  investigations  of  and  reports  upon  engineer¬ 
ing  projects,  as  a  basis  for  executive  action. 

Examples: 

Directing,  a  field  party  on  surveys,  construction  or  repair  work. 

Supervising  a  squad  or  division  in  designing  and  preparing  plans, 
estimates  and  specifications. 

Assuming  responsibility  for  the  construction,  installation  or  operation 
of  a  minor  division  under  a  pumping,  watershed,  power  production, 
purification  or  sewage  disposal  project;  or  the  installation  of  a  heating, 
lighting,  plumbing  or  electrical  plant. 

Preparing  highway  lay-outs  and  grades. 

Making  engineering  investigations  and  reports  relating  to  building 
encroachments,  sewer  construction,  sewage  disposal,  traffic  conditions, 
highway  opening  proceedings,  applications  for  franchises. 


QUALIFICATIONS - 

Persons  holding  these  positions  shall  have : 

1 .  As  a  basis  for  promotion : 

(a)  The  minimum  qualifications  prescribed  for  Grade  II. 

(b)  Not  less  than  three  years  of  service  in  Grade  II. 

(c)  Such  additional  qualifications  as  may  be  required  by  the  State 
Civil  Service  Commission. 

2.  As  a  basis  for  original  appointment : 

(a)  Not  less  than  seven  years  of  experience  in  the  particular  branch  of 
engineering  work  covered  in  the  position  to  be  filled. 

(b)  Such  additional  qualifications  as  may  be  required  by  the  State 
Civil  Service  Commission. 


COMPENSATION - 

The  range  of  annual  compensation  of  this  Grade  for  full  time  service 
is  from  $1800  to  $2580,  inclusive,  with  standard  salary  rates  as  follows: 
$1800,  $1980,  $2160,  $2340,  $2580. 

SPECIAL  REGULATION  GOVERNING  SALARY  RATES - 

The  entrance  and  other  salary  rates  of  positions  classified  within  this 
Grade  are  conditional  upon  appraisal,  under  the  rules  of  the  State  Civil 
Service  Commission,  indicating  that  the  rates  to  be  designated  do  not 
exceed  the  value  of  the  work  to  be  performed. 


106 


EXHIBIT  3— STATE  SPECIFICATIONS 


GRADE  IV  (D  io  IV) 


TITLES  OF  POSITIONS - 

SENIOR  ASSISTANT  ENGINEER 
SENIOR  ASSISTANT  CIVIL  ENGINEER 
SENIOR  ASSISTANT  ELECTRICAL  ENGINEER 
SENIOR  ASSISTANT  MECHANICAL  ENGINEER 
SENIOR  ASSISTANT  SANITARY  ENGINEER 


DUTIES — 

Definition: 

The  duties  of  incumbents  of  these  positions  are  to  supervise  and  as¬ 
sume  complete  responsibility  for  the  work  of  a  main  division  of  a  small 
organization,  or  a  large  subdivision  of  one  of  the  main  divisions  of  a  large 
organization,  involving  surveying,  designing  or  construction;  to  main¬ 
tain  or  operate  a  major  section  of  a  large  engineering  project;  and  to  make 
independent  investigations  of  and  reports  upon  engineering  projects 
as  a  basis  for  executive  action. 

Examples : 

Supervising  a  main  division  of  a  large  bureau  of  design. 

Supervising  the  construction,  installation  or  operation  of  a  major  divi¬ 
sion  of  a  large  power  production,  purification  or  disposal  plant. 

Supervising  the  installation  of  a  major  division  of  a  heating,  lighting, 
plumbing  or  electrical  plant. 

Supervising  the  construction,  operation,  maintenance  or  repair  of  a  major 
division  of  sewers,  highways,  bridges,  aqueducts,  reservoirs,  tunnels  or 
public  buildings. 

Supervising  engineering  investigations,  inspections,  estimates  and  re¬ 
ports  for  municipal  improvements. 

Taking  charge  of  a  section  of  the  work  on  the  Barge  canal,  such  as 
assuming  charge  of  a  residency  of  the  State  Engineer’s  office. 

QUALIFICATIONS - 

Persons  holding  these  positions  shall  have : 

1.  As  a  basis  for  promotion: 

(a)  The  minimum  qualifications  prescribed  for  Grade  III. 

(b)  Not  less  than  three  years  of  service  in  Grade  III. 

(c)  Such  additional  qualifications  as  may  be  required  by  the  State 
Civil  Service  Commission. 

2.  As  a  basis  for  original  appointment: 

(a)  Not  less  than  ten  years  of  experience  in  engineering  work,  at  least 
half  of  which  must  have  been  in  the  particular  branch  of  engineering  work 
covered  in  the  position  to  be  filled,  and  three  years  of  which  must  have 
been  in  a  minor  executive  capacity. 

(b)  Such  additional  qualifications  as  may  be  required  by  the  State 
Civil  Service  Commission. 

COMPENSATION - 

The  range  of  annual  compensation  of  this  Grade  for  full  time  service  is 
from  $2208  to  $3600,  inclusive,  with  standard  salary  rates  as  follows: 
$2820,  $3060,  $3300,  $3600. 

SPECIAL  REGULATION  GOVERNING  SALARY  RATES - 

The  entrance  and  other  salary  rates  of  positions  classified  within  this 
Grade  are  conditional  upon  appraisal,  under  the  rules  of  the  State  Civil 
Service  Commission,  indicating  that  the  rates  to  be  designated  do  not 
exceed  the  value  of  the  work  to  be  performed. 

107 


STANDARDIZATION  OF  PUBLIC  EMPLOYMENTS 


GRADE  V  (D  io  V) 


TITLES  OF  POSITIONS — 


ENGINEER 
CIVIL  ENGINEER 
ELECTRICAL  ENGINEER 
MECHANICAL  ENGINEER 
SANITARY  ENGINEER 


DUTIES — 

Definition: 

The  duties  of  incumbents  of  these  positions,  which  require  a  high  degree 
of  executive  ability  and  specialized  engineering  technique,  and  which 
involve  the  making  of  decisions  in  administrative  and  engineering  mat¬ 
ters,  subject  to  statutory  limitations  only,  are  to  supervise  and  assume 
entire  responsibility  for  the  work  of  a  small  independent  organization; 
to  supervise  and  assume  complete  responsibility  for  the  work  of  a  primary 
division  of  a  large  organization;  and  to  make  independent  investigations 
of  and  reports  upon  engineering  projects,  as  a  basis  for  executive  action. 

Examples: 

Acting  as  chief  engineer  of  a  bureau  of  a  large  department. 

Acting  as  a  division  engineer  of  one  of  the  three  divisions  in  the  State 
Engineer’s  office;  or  as  division  engineer  in  the  Department  of  Highways. 

QUALIFICATIONS - 

Persons  holding  these  positions  shall  have: 

1.  As  a  basis  for  promotion : 

(a)  The  minimum  qualifications  prescribed  for  Grade  IV. 

(b)  Not  less  than  three  years  of  service  in  Grade  IV. 

(c)  Such  additional  qualifications  as  may  be  required  by  the  State 
Civil  Service  Commission. 

2.  As  a  basis  for  original  appointment: 

(a)  Not  less  than  thirteen  years  of  experience  in  engineering  work,  at 
least  half  of  which  must  have  been  in  the  particular  branch  of  engineering 
work  covered  in  the  position  to  be  filled,  and  four  years  of  which  must 
have  been  in  a  major  executive  capacity. 

(b)  Such  additional  qualifications  as  may  be  required  by  the  State 
Civil  Service  Commission. 


COMPENSATION - 

The  range  of  annual  compensation  of  this  Grade  for  full  time  service  is 
from  $3900  to  $5400,  inclusive,  with  standard  salary  rates  as  follows: 
$3900,  $4200,  $4500,  $4800,  $5100,  $5400. 

SPECIAL  REGULATION  GOVERNING  SALARY  RATES - 

The  entrance  and  other  salary  rates  of  positions  classified  within  this 
Grade  are  conditional  upon  appraisal,  under  the  rules  of  the  State  Civil 
Service  Commission,  indicating  that  the  rates  to  be  designated  do  not 
exceed  the  value  of  the  work  to  be  performed. 


108 


EXHIBIT  S— STATE  SPECIFICATIONS 


(GRADE  VI  D  io  VI) 


TITLES  OF  POSITIONS - 

CHIEF  ENGINEER 
CONSULTING  ENGINEER 
SUPERVISING  ENGINEER 


DUTIES — 

Definition: 

The  duties  of  incumbents  of  these  positions,  which  require  the  highest 
order  of  executive  or  advisory  ability,  and  which  involve  the  making  of 
final  decisions  in  administrative  and  engineering  matters,  subject  to 
statutory  limitations  only,  are  to  supervise  and  assume  entire  responsi¬ 
bility  for  all  the  engineering  work  of  a  large  independent  organization; 
or  to  supervise  the  construction  of  engineering  projects  or  works  of  great 
magnitude  and  complexity;  or  to  give  independent,  expert  or  critical 
engineering  advice  of  the  highest  order,  as  a  basis  for  executive  action 
relative  to  work  of  this  scope. 

Examples: 

Acting  as  State  Engineer. 

Acting  as  consulting  engineer  to  a  State  department. 

Acting  as  engineer  of  a  division  of  subway  construction. 

QUALIFICATIONS - 

Persons  holding  these  positions  shall  have: 

1.  As  a  basis  for  promotion: 

(a)  The  minimum  qualifications  prescribed  for  Grade  V. 

(b)  Not  less  than  five  years  of  service  in  Grade  V. 

(c)  Such  additional  qualifications  as  may  be  required  by  the  State  Civil 
Service  Commission  or  the  appointing  agency. 

2.  As  a  basis  for  original  appointment: 

CHIEF  ENGINEER 

(a)  Not  less  than  eighteen  years  of  experience  in  engineering  work, 
at  least  half  of  which  must  have  been  in  the  particular  branch  of  engineer¬ 
ing  work  covered  in  the  position  to  be  filled,  and  five  years  of  which  must 
have  been  in  a  major  executive  capacity. 

(b)  Such  additional  qualifications  as  may  be  required  by  the  State 
Civil  Service  Commission. 

CONSULTING  ENGINEER 
SUPERVISING  ENGINEER 

(a)  Not  less  than  eighteen  years  of  experience  in  the  particular  branch 
of  engineering  work  covered  in  the  position  to  be  filled. 

(b)  Such  additional,  qualifications  as  may  be  required  by  the  State 
Civil  Service  Commission. 


COMPENSATION - 

The  annual  compensation  of  this  Grade  for  full  time  service  with  stand¬ 
ard  salary  rates,  is  as  follows:  $5700  and  up. 


SPECIAL  REGULATION  GOVERNING  SALARY  RATES - 

The  entrance  and  other  salary  rates  of  positions  classified  within  this 
Grade  are  conditional  upon  appraisal,  under  the  rules  of  the  State  Civil 
Service  Commission,  indicating  that  the  rates  to  be  designated  do  not 
exceed  the  value  of  the  work  to  be  performed. 

109 


8 


EXHIBIT  4 


CITY  SPECIFICATIONS 

Types  of  Representative  Specifications  Used  in  the  Stand¬ 
ardization  of  Public  Employments 

(Prepared  j or  New  York  City ,  New  York,  1915) 


CLERK  GROUP 

SYMBOL  (CC) 

The  term  Clerk  Group  is  applied  to  those  offices  or  employments  of  the  Cler¬ 
ical  Service  in  which  incumbents  are  required  to  perform  routine  or  special¬ 
ized  clerical  work  not  included  in  the  other  groups  of  the  Clerical  Service. 

The  training  and  experience  which  are  required  for  admission  to  positions 
in  the  various  grades  and  the  specific  duties  of  incumbents  of  these  positions 
are  set  forth  in  the  several  grade  specifications  which  follow. 

GENERAL  REGULATIONS  GOVERNING  ADVANCEMENT - 

Beginning  with  the  lowest  rate,  advancement  from  rate  to  rate  within  each 
grade  shall  be  made  regularly  in  the  preparation  of  the  annual  tax  budget 
upon  the  completion  of  a  term  of  at  least  one  year  of  satisfactory  service. 
Proof  of  satisfactory  service  shall  be  established  by  the  efficiency  records  of  the 
Municipal  Civil  Service  Commission  supplemented  by  investigation  under  the 
rules  of  the  Board  of  Estimate  and  Apportionment.  The  standard  of  satis¬ 
factory  service,  which  shall  entitle  an  employe  to  an  increase,  shall  be  deter¬ 
mined  annually  in  the  preparation  of  the  tax  budget  and  shall  be  progressively 
higher  in  each  succeeding  grade. 

Exceptions: 

1.  In  cases  of  conspicuous  service  or  achievement  recognized  by  the 
Board  of  Estimate  and  Apportionment,  advancement  may  be  made  after 
the  prescribed  interval  to  a  rate  higher  than  the  one  immediately  above ^ 

2.  In  those  grades  specifically  designated,  advancement  shall  be  made 
only  after  an  appraisal  of  the  value  of  the  work  to  be  performed.  In 
other  grades  specifically  designated  the  initial  rate  also  shall  be  deter¬ 
mined  after  an  appraisal.  These  appraisals  shall  be  made  under  the 
rules  of  the  Board  of  Estimate  and  Apportionment. 

3.  Appointments  to  vacant  positions  made  prior  to  February  1  of  each 
year  will  be  regarded  as  dating  from  January  1,  when  considering  length 
of  service  in  connection  with  salary  increases. 


110 


EXHIBIT  4— CITY  SPECIFICATIONS 


GRADE  i  (C  C  i) 

TITLES  OF  POSITIONS — 

OFFICE  BOY 


DUTIES — 

The  duties  of  incumbents  of  these  positions  are  to  perform  under 
supervision  the  simplest  kinds  of  office  work. 

Examples: 

Addressing. 

Mailing. 

Letter-press  copying. 

Indexing. 

Ordinary  filing. 

Keeping  office  in  order. 

Running  errands 
Receiving  visitors. 

Distributing  mail. 

Operating  office  telephone  switchboards. 

QUALIFICATIONS - 

1.  Such  qualifications  as  may  be  required  by  the  Municipal  Civil  Serv¬ 
ice  Commission. 

COMPENSATION — 

Range  of  annual  compensation — $300  to  $480  inclusive. 

Salary  rates — $300,  $360,  $420,  $480. 


Ill 


STANDARDIZATION  OF  PUBLIC  EMPLOYMENTS 


GRADE  2  (C  C  2) 

TITLES  OF  POSITIONS — 

JUNIOR  CLERK 


DUTIES — 

The  duties  of  incumbents  of  these  positions  are  to  perform  under 
supervision  prescribed  routine  clerical  work  of  minor  consequence. 

Examples: 

Plain  longhand  copying. 

Keeping  card  indices. 

Recording,  indexing  and  filing  correspondence. 

Receiving  and  distributing  routine  reports  and  applications. 

Making  out  and  tabulating  daily,  weekly  and  monthly  reports,  simple 
charts  and  statistics. 

Registering  and  verifying  extensions  and  additions  on  orders  and  in¬ 
voices. 

Writing,  registering  and  scheduling  vouchers. 

Recording  and  filing  inspectors’  reports. 

Operating  tabulating  machines,  adding  and  scheduling  machines  and 
addressographs. 

Performing  simple  or  apprentice  work  on  Hollerith  or  multigraph 
machines. 

Verifying  time  sheets  and  payrolls. 

Writing  notices  and  permits  on  prepared  forms. 

Acting  as  information  clerk  for  a  department  in  outer  office. 

QUALIFICATIONS - 

1.  The  minimum  qualifications  prescribed  for  Grade  1. 

2.  Not  less  than  one  year  of  experience  in  Grade  1,  or  if  appointed  other¬ 
wise  than  by  promotion  from  Grade  1,  in  work  of  the  character  and  stand¬ 
ard  of  Grade  1. 

3.  Such  additional  qualifications  as  may  be  required  by  the  Municipal 
Civil  Service  Commission. 

C  OMPENSATION — 

Range  of  annual  compensation — $540  to  $720  inclusive. 

Salary  rates — $540,  $600,  660,  $720. 


112 


EXHIBIT  4— CITY  SPECIFICATIONS 


GRADE  3  (C  C  3) 

TITLES  OF  POSITIONS — 

ASSISTANT  CLERK 

ASSISTANT  CLERK  (HOLLERITH  OPERATOR) 
ASSISTANT  CLERK  (MULTIGRAPH  OPERATOR) 

DUTIES — 

Assistant  Clerk: 

The  duties  of  Assistant  Clerks,  which  may  involve  limited  supervision, 
are  to  perform  clerical  work  incident  to  preparing,  compiling,  entering  or 
verifying  routine  office  information,  reports,  records  and  forms,  and  to 
dealing  with  the  public  on  routine  departmental  matters. 

Examples: 

Reviewing  inspectors’  reports. 

Copying  and  compiling  cost  account  records  under  supervision. 

Calculating  and  scheduling  penalties  and  arrears. 

Filing  and  keeping  in  custody  important  papers  and  records. 

Checking  work  of  diagnosticians. 

Selling  tickets. 

Receiving  for  custody  and  returning  property  in  small  property  divi¬ 
sions. 

Receiving  and  referring  complaints  and  giving  out  information. 

Keeping  time  records  of  per  diem  employes. 

Issuing  permits  and  notices  according  to  prescribed  regulations. 

Making  up  and  verifying  payroll. 

Filing  and  indexing  medical  records. 

Searching  wills  and  corporation  records. 

Explaining  building  plans  to  applicants. 

Receiving  applications  and  issuing  certificates  for  commissioners  of 
deeds. 

Keeping  cost  records  of  mechanics’  work. 

Assistant  Clerk  ( Hollerith  Operator): 

The  specialized  duties  of  Assistant  Clerks  (Hollerith  Operator)  are  to 
operate  complicated  Hollerith  systems  in  the  performance  of  work  re¬ 
quiring  great  expertness  in  punching,  sorting,  tabulating  and  checking, 
and  involving  considerable  responsible  clerical  work. 

Assistant  Clerk  ( Multigraph  Operator): 

The  specialized  duties  of  Assistant  Clerks  (Multigraph  Operator)  are 
to  operate  multigraph  machines  in  the  performance  of  work  requiring  great 
expertness  and  involving  considerable  responsible  clerical  work. 

QUALIFICATIONS - 

1.  The  minimum  qualifications  prescribed  for  Grade  2. 

2.  Not  less  than  one  year  of  experience  in  Grade  2,  or  if  appointed 
otherwise  than  by  promotion  from  Grade  2,  in  work  of  the  character  and 
standard  of  Grade  2. 

3.  Such  additional  qualifications  as  may  be  required  by  the  Municipal 
Civil  Service  Commission. 

COMPENSATION — 

Assistant  Clerk: 

Range  of  annual  compensation — $840  to  $1200  inclusive. 

Salary  rates —  $840,  $960,  $1080,  $1200. 

Assistant  Clerk  ( Hollerith  Operator): 

Assistant  Clerk  ( Multigraph  Operator): 

Range  of  annual  compensation — $720  to  $960  inclusive. 

Salary  rates — $720,  $840,  $960. 

Special  Regulation  Governing  Advancement — 

Beginning  with  the  lowest  rate  advancement  within  this  grade  is  con¬ 
ditional  upon  appraisal  under  the  rules  of  the  Board  of  Estimate  and  Ap¬ 
portionment,  indicating  that  the  rate  requested  does  not  exceed  the  value 
of  the  work  to  be  performed. 


113 


STANDARDIZATION  OF  PUBLIC  EMPLOYMENTS 


GRADE  4  (C  C  4) 

TITLES  OF  POSITIONS — 

CLERK 

CLERK  (BERTILLON) 

CLERK  (FINGER  PRINT) 

DUTIES — 

Clerk: 

The  duties  of  Clerks,  which  may  include  taking  charge  of  the  clerical 
force  in  divisions  and  in  minor  bureaus  or  departments,  are  to  exercise 
continuing  judgment  and  responsibility  either  in  independent  work  or 
in  the  supervision  of  other  employes. 

Examples: 

Preparing  specifications,  requisitions,  orders  of  advice  of  awards. 

Opening  and  tabulating  bids. 

Receiving  and  finally  disposing  of  routine  complaints. 

Summarizing  reports. 

Computing  financial  or  cost  statistics,  estimates,  etc. 

Receiving  and  assuming  responsibility  for  the  safekeeping  of  money  in 
payment  of  taxes,  water  bills,  permits,  dock  and  pier  fees,  etc. 

Certifying  correctness  of  payrolls  as  to  proper  charges  of  salaries, 
wages,  time,  etc. 

Collecting  and  computing  data  for  budget  estimates. 

Supervising  employes  charged  with  renovations,  disinfections,  inven¬ 
tories,  stores  and  expense  accounting. 

Directing  payroll  divisions  in  large  departments. 

Issuing  and  keeping  record  of  electric  sign  licenses. 

Sealing  and  keeping  record  of  corporate  stock,  etc. 

Taking  charge  of  central  property  division  of  Police  Department. 

Keeping  record  of  cases  and  issuing  papers  for  courts. 

Preparing  contracts  according  to  prescribed  specifications. 

Acting  as  Clerk  to  Board  of  Aldermen. 

Issuing  legal  notices  for  street  openings. 

Searching  deeds,  mortgages  and  tax  records. 

Installing,  revising  and  taking  charge  of  complicated  departmental 
filing  systems. 

Collecting  rentals  at  City  markets. 

Taking  charge  of  large  stenographic  bureau. 

Clerk  ( Bertillon ): 

The  specialized  duties  of  Clerks  (Bertillon)  are  to  take  and  develop 
photographs  of  prisoners,  to  take,  record  and  file  Bertillon  measurements, 
and  to  identify  prisoners  from  measurements  and  photographs  on  file. 

Clerk  ( Finger  Print): 

The  specialized  duties  of  Clerks  (Finger  Print)  are  to  take,  classify  and 
identify  finger  prints. 

QUALIFICATIONS — 

1.  The  minimum  qualifications  prescribed  for  Grade  3. 

2.  Not  less  than  one  year  of  experience  in  Grade  3,  or  if  appointed 
otherwise  than  by  promotion  from  Grade  3,  in  work  of  the  character 
and  standard  of  Grade  3. 

3.  Such  additional  qualifications  as  may  be  required  by  the  Municipal 
Civil  Service  Commission. 

COMPENSATION - 

Range  of  annual  compensation — $1320  to  $1800  inclusive. 

Salary  rates— $1320,  $1440,  $1560,  $1680,  $1800. 

SPECIAL  REGULATION  GOVERNING  ADVANCEMENT — 

Beginning  with  the  lowest  rate  advancement  within  this  grade  is  con¬ 
ditional  upon  appraisal  under  the  rules  of  the  Board  of  Estimate  and 
Apportionment,  indicating  that  the  rate  requested  does  not  exceed  the 
value  of  the  work  to  be  performed. 

114 


EXHIBIT  4— CITY  SPECIFICATIONS 


GRADE  5  (C  C  5) 


TITLES  OF  POSITIONS — 

SENIOR  CLERK 

SENIOR  CLERK  (FINGER  PRINT) 


DUTIES — 

Senior  Clerk: 

The  duties  of  Senior  Clerks,  which  require  a  high  degree  of  clerical 
knowledge  and  administrative  ability,  are  to  assume  complete  responsi¬ 
bility  for  the  clerical  work  of  entire  bureaus  or  departments  other  than 
those  mentioned  in  Grades  4  and  6. 

Examples: 

Taking  charge  of  a  central  departmental  stenographic  bureau,  as  in 
the  Department  of  Health. 

Senior  Clerk  ( Finger  Print): 

The  specialized  duties  of  Senior  Clerks  (Finger  Print),  which  require  a 
high  degree  of  technical  knowledge  and  ability,  are  to  supervise  the 
routine  work  of  taking,  classifying  and  identifying  finger  prints,  and  to 
perform  exceptionally  difficult  fingerprint  work  requiring  special  skill. 

QUALIFICATIONS - 

1.  The  minimum  qualifications  prescribed  for  Grade  4. 

2.  Not  less  than  two  years  of  experience  in  Grade  4,  or  if  appointed 
otherwise  than  by  promotion  from  Grade  4,  in  work  of  the  character 
and  standard  of  Grade  4. 

3.  Such  additional  qualifications  as  may  be  required  by  the  Municipal 
Civil  Service  Commission. 


COMPENSATION — 

Range  of  annual  compensation — $1980  to  $2580  inclusive. 

Salary  rates — $1980,  $2160,  $2340,  $2580. 

SPECIAL  REGULATION  GOVERNING  ADVANCEMENT - 

Beginning  with  the  lowest  rate  advancement  within  this  grade  is  con¬ 
ditional  upon  appraisal  under  the  rules  of  the  Board  of  Estimate  and 
Apportionment,  indicating  that  the  rate  requested  does  not  exceed  the 
value  of  the  work  to  be  performed. 


115 


STANDARDIZATION  OF  PUBLIC  EMPLOYMENTS 


GRADE  6  (C  C  6) 

TITLES  OF  POSITIONS — 

CHIEF  CLERK 


DUTIES — 

The  duties  of  incumbents  of  these  positions,  which  require  the  highest 
degree  of  clerical  knowledge,  administrative  ability  and  experience,  are 
to  assume  complete  responsibility  for  the  clerical  work  of  large  depart¬ 
ments  composed  of  several  bureaus  under  the  direction  of  clerks  in  Grades 
4  and  5. 


QUALIFICATIONS - 

1.  The  minimum  qualifications  prescribed  for  Grade  5. 

2.  Not  less  than  three  years  of  experience  in  Grade  5,  or  if  appointed 
otherwise  than  by  promotion  from  Grade  5,  in  work  of  the  character 
and  standard  of  Grade  5. 

3.  Such  additional  qualifications  as  may  be  required  by  the  Municipal 
Civil  Service  Commission. 

COM  PEN SATION — - 

Range  of  annual  compensation — $2820  to  $3540  inclusive. 

Salary  rates— $2820,  $3060,  $3300,  $3540. 

SPECIAL  REGULATION  GOVERNING  ADVANCEMENT - 

Beginning  with  the  lowest  rate  advancement  within  this  grade  is  con¬ 
ditional  upon  appraisal  under  the  rules  of  the  Board  of  Estimate  and  Ap¬ 
portionment,  indicating  that  the  rate  requested  does  not  exceed  the  value 
of  the  work  to  be  performed. 


116 


EXHIBIT  4-A 

TYPE  OF  CHICAGO  CLASSIFICATION 


Representing  Classification  According  to  Class  of  Em¬ 
ployment 

(See  page  23) 

CLASS  C— CLERICAL  SERVICE 

Positions  of  persons  rendering  clerical  service  or  service  in  connection  with 
general  office  work  or  management  which  does  not  require  knowledge  of  any 
of  the  specialties  included  in  other  classes. 

Grade  I :  Positions  the  duties  of  which  are  of  general  routine.  The  following 
positions  are  hereby  classified  in  Class  C,  Grade  I,  and  placed  in  the 


following  salary  schedule  within  Grade  I : 

Office  attendant 
Page 

Group  D .  $300 

Group  C  (at  least  three  months’  service  in  lower  group) .  360 

Group  B  (at  least  six  months’  service  in  next  lower  group) .  420 

Group  A  (at  least  one  year’s  service  in  next  lower  group) .  480 


Grade  II :  Positions  the  duties  of  which  require  some  skill  and  accuracy  but 
not  necessarily  much  practical  experience,  involving  simple  office  routine. 
The  following  positions  are  hereby  classified  in  Class  C,  Grade  II,  and 


placed  in  the  following  salary  schedule  within  Grade  II : 

Messenger 

Multi graph  Operator 

Stenographic  assistant  (enters  Group  C) 

Group  D .  $540 

Group  C  (at  least  1  year’s  service  in  lower  group) .  600 

Group  B  (at  least  1  year’s  service  in  next  lower  group) .  660 

Group  A  (at  least  1  year’s  service  in  next  lower  group) .  720 


Grades  III,  IV,  V,  VI,  VII  and  VIII  are  developed  on  this  basis,  and  con¬ 
stitute  the  specifications  covering  the  entire  clerical  service. 


117 


i 


